Lessons from Luangwa
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INTERNATIONAL INSTITUTE FOR ENVIRONMENT AND DEVELOPMENT Wildlife and Development Series No. 13 March 2003 In association with SOUTH LUANGWA AREA MANAGEMENT UNIT [Formerly the Luangwa Integrated Resource Development Project] Zambia Lessons from Luangwa The Story of the Luangwa Integrated Resource Development Project, Zambia By Barry Dalal-Clayton and Brian Child with contributions by Cheryl Butler and Elias Phiri IIED 3 Endsleigh Street, London WC1H ODD Tel: +44-207-388-2117; Fax: +44-207-388-2826 Email: [email protected] Website: http://www.iied.org SLAMU Zambia Wildlife Authority PO Box 510249 Chipata, Eastern Province, Zambia Tel: +260 -62-21126/22825/22826; Fax: +260-62-21092 E-mail: [email protected] Copies of this report are available from: Earthprint Ltd. PO Box 119, Stevenage, Hertfordshire, SG1 4TP, England Tel: +44 (0)1438 748111 Fax: +44 (0)1438 748844 Email: [email protected] Web: www.EarthPrint.com Earthprint Order No. 9079IIED Copyright © International Institute for Environment and Development Citation: Barry Dalal-Clayton and Brian Child, Lessons from Luangwa: The Story of the Luangwa Integrated Resource Development Project, Zambia. Wildlife and Development Series, 13, International Institute for Environment and Development, London, England A CIP catalogue record for this book is available from the British Library. The views expressed in this report are those of the authors. These views should not be taken to represent those of the International Institute for Environment and Development or of the South Luangwa Area Management Unit of the Zambia Wildlife Authority. Cover photographs: Barry Dalal-Clayton except for photograph of the late Senior Chiefteness Nsefu (Thor Larsen) Cover design: www.MyWord.co.uk Printed by: OldAcres, London Readers are encouraged to quote or reproduce material from this book for non-commercial purposes but, as copyright holder, IIED requests due acknowledgement, with full reference to the publication, and a copy of the publication. ISBN: 1 84369 225 2 ISSN: 1361 8628 International Institute for Environment and Development 3 Endsleigh Street, London WC1H ODD, UK Tel: +44 (0)207 388 2117; Fax: +44 (0)207 388 2826 Contact email: [email protected] Websites: www.iied.org ii iii DEDICATIONS This report is dedicated to the memory of four dear departed friends who were dedicated servants of the LIRDP/SLAMU project and played key roles in its evolution: Gudbrand Stuve was tragically killed in The Yemen on his return journey to Norway after a four year tour of duty at the Norwegian Embassy in Lusaka. During this time, Gudbrand was responsible for Norwegian support to LIRDP/SLAMU and was instrumental in securing financial support and encouragement for this work. Fidelis Lungu and Richard Bell were co-Directors of LIRDP during its initial stages. They pioneered the project through its birth and faced the difficult political and institutional challenges that characterized the introduction of this experimental new approach Flywell Munyenyembe was project Director through Phases 3 and 4 and steered LIRDP/SLAMU through the huge task of re-structuring and refocusing. Wherever they are now, we hope they will remember the ‘Valley’ through this poem. THE LUANGWA RIVER Look over there. What can you see? Luangwa River, flowing from the north east to the south of our lovely Luangwa Valley. Look at its beauty, the grass and trees which grow so lush. Buffaloes will graze, birds will swim, feed and bathe. But what do I see or hear? People disturb the catchment area. Please, please man. Stop doing that and live as one forever. Gabriel Masaku PR Scout, Mfuwe 1997 iv CONTENTS Dedications iii Acknowledgements xv Abbreviations xvi Preface xvii About the authors xxi Executive summary xxiii Synopsis 1 1. An introductory perspective 1 1.1 The early approach 1 1.2 The Kaunda factor 1 1.3 A changed approach 2 1.4 A people -centred approach 2 1.5 The problem of parks 3 1.6 Battles for survival 3 1.7 The challenge of managing a park 4 1.8 Strong management and leadership 4 1.9 Many lessons 5 2. Content and structure of the review 5 2.1 Structure 6 3. Key characteristics and history of the Luangwa Valley 7 3.1 Early conservation efforts and mega -poaching 8 4. A short history of LIRDP 8 4.1 Origins of LIRDP 8 4.2 Initiation of the project 9 4.3 Phase1: project preparation (May 1986 - June 1987) 9 4.4 Phase 2: investment in activities and development of LIRDP (July 1987 – end 1992) 11 4.5 Project reviews in Phase 2 12 4.6 Change of focus and bridging phase (1993-1994) 13 4.7 Making wildlife the core business: Phase 3 (1995-1998) 13 4.8 Building a vision and guiding coalition 14 4.9 The new CBNRM approach 15 (a) Institutions 15 (b) The importance of revenue distribution 17 (c) Evidence that devolution to communities works 17 (d) The uptake of natural resource management 17 (e) The impact of revenue distribution on community attitudes 18 (f) Conflicts related to devolution and wildlife 19 (g) Proprietorship, institutional change and the wider political economic context 20 (h) 1998 – a year of metamorphosis and preparing for Phase 4 20 v 4.10 Implementing the vision: Phase 4 (1999-2002) 21 5. Key issues and lessons 22 5.1 The political economy of wildlife and LIRDP 22 (a) Central control and ‘nationalisation’ of wildlife 22 (b) Accountability and politics: Presidential involvement and relations with NPWS 23 5.2 Integrated rural development 24 (a) LIRDP’s obje ctives for integrated rural development 24 (b) Constraints to success 24 (c) The mini-government approach 25 (d) Possibilities offered by community organisations 26 (e) How can we integrate rural development? 26 (f) How could LIRDP have been done better? 27 (g) Mistaken financial priorities 27 (h) In retrospect, how could we address integrated resource development? 28 (i) A new role for protected areas? 28 5.3 The community wildlife programme 28 (a) Revenue distribution 29 (b) Evaluations 30 (c) Administrative and traditional structures, and the role of chiefs 31 5.4 Managing South Luangwa National Park and wildlife 31 (a) Law enforcement 31 (b) Park planning 32 5.5 Project financing and management: lessons for development aid and wildlife departments 32 (a) Levels of donor funding 32 (b) Performance management 33 (c) Tourism 33 (d) Road improvements 33 (e) Project headquarters 34 (f) Commercial ventures 34 (g) A rough cost-benefit analysis of LIRDP 35 (h) Role of NORAD 35 (j) Reviews 36 5.6 Major threats 37 5.7 Conclusions 38 CHAPTERS 1: INTRODUCTION 1.1 The purpose of this review 39 1.2 The emergence of sustainable use and community wildlife management in south-central Africa. 39 1.3 The Luangwa Integrated Resource Development Programme (LIRDP) 44 1.4 Scope of the review and some key lessons 46 1.5 Key characteristics of the Luangwa Valley 47 1.6 A brief history of conservation and development in the Luangwa Valley 51 vi 2: ORIGINS AND INITIATION OF LIRDP 55 2.1 The Lupande Development Workshop 55 2.2 An outline proposal for a Luangwa Development Project 56 2.3 Development of the LIRDP proposal 56 2.4 Initiation of LIRDP 58 3: PHASES 1 AND 2: PREPARATION AND IMPLEMENTATION 61 3.1 Phase 1 (May 1986 - June 1987): Preparatory phase 61 3.2 Phase 2 (July 1987 - end 1992): Investment and development phase 63 3.3 Phase 2 reviews 68 3.3.1 First review mission 69 3.3.2 Second review mission 73 3.3.3 Third review mission 75 4: A CHANGE OF FOCUS 83 4.1 The close of Phase 2 and the bridging phase (1993-1994) 83 4.1.1 Review of Phase 3 proposals 85 4.1.2 Revised proposals for Phase 3 91 5: A NEW APPROACH: MAKING WILDLIFE MANAGEMENT THE CORE BUSINESS 97 5.1 The Phase 3 programme (1995-1998) 97 5.2 Shedding non-wildlife functions 98 5.3 Park and wildlife management 99 5.3.1 Park planning 99 5.3.2 Law enforcement 100 5.3.3 Hippo culling 101 5.3.4 Safari hunting 103 5.3.5 Wildlife surveys 104 5.4 A vision for the future: re-engineering LIRDP 104 5.5 Review of Phase 3 and planning for Phase 4 107 5.6 Changes to the CBNRM programme 112 5.7 Devolving the distribution of benefits 117 5.8 Changing attitudes: an independent assessment of progress in the CBNRM programme 121 5.8.1 Views and attitudes towards national parks, wildlife conservation and wildlife tourism 122 5.8.2 Views on local community benefits from wildlife through tourism 122 5.8.3 Local community ambitions for the future 126 5.8.4 Attitudes towards LIRDP 128 5.9 Community empowerment: cultural tourism and community businesses 131 5.9.1 Development of community-centred cultural tourism 131 (a) Kawaza Village tourism project 131 (b) Nsendamila cultural village 134 (c) Kawaza and Nsendamila compared 134 (d) Marketing 135 5.9.2 Nsefu Fishing Association (NFA) 137 5.9.3 Kakumbi Natural Resources Management Business (KNRMB) 138 vii 5.10 Conclusions from Butler’s research 139 6: IMPLEMENTING THE VISION: THE FIRST YEARS OF PHASE 4 (1999-2002) 141 6.1 Planning and change management 141 6.1.1 The process of change from LIRDP to SLAMU 141 6.1.2 NORAD-GRZ agreement for Phase 4 147 6.2 The introduction of performance management 148 6.2.1 Managing through the logical framework approach 148 (a) Improving management systems 148 6.2.2 Ecological monitoring and management 151 (a) Management controls and biodiversity conservation 151 (b) Key success factors for ecosystem management in SLNP 152 (c) The ecological monitoring system 152 6.3 The status of the project in 1999 157 6.3.1 Performance management and financial savings 157 6.3.2 Tourism and income 158 6.3.3 Law enforcement in the LIRDP area 159 (a) The changing elephant population 160 (b) Law enforcement expenditure and the ivory ban 160 (c) Law enforcement effort 162 (d) Adequate levels of law enforcement 165 6.3.4 Adequate levels of law enforcement 166 (a) Audit report of community accounts 166 (b) Community projects 167 (c) The emergence of active wildlife management in communities 167 (i) Electric fencing 168 (ii) Community-based scouts 168 (iii) Investment in wildlife production 169 (v) Community involvement in the sustainable use of natural resources.