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Collaborative Management Models for Conservation Areas In COLLABORATIVE MANAGEMENT MODELS FOR CONSERVATION AREAS IN MOZAMBIQUE Regional Best Practices, Current Models in Mozambique and a Framework for Enhancing Partnerships to Protect Biodiversity Assets and Promote Development Supporting the Policy Environment for Economic Development (SPEED+) MAY 2018 DISCLAIMER This document was produced by the USAID SPEED+ Project under Contract AID-656-TO-16-00005 at the request of the United States Agency for International Development Mozambique Mission. The document is made possible by the support of the American people through USAID. Its contents are the sole responsibility of the author or authors and do not necessarily reflect the views of USAID or the United States government. Acknowledgements The authors would like to thank the collaboration of ANAC, Biofund, SPEED+, and Nathan Associates Inc., as well as all interviewees and respondents who graciously offered their time, insights, and recommendations. We are especially grateful to ANAC (Bartolomeu Soto, Felismina Langa, Agostinho Nazare, Raimundo Matusse, and all others who contributed their time), Biofund (including Luis Bernardo Honwana, Sean Nazerali, and Alexandra Jorge), SPEED+ (including Sergio Chitara, Ashok Menon, Afonso Madope, Vera Julien), and USAID (in particular, Amanda Fong, Danielle Tedesco, Olivia Gilmore), for their support and the three park wardens and their staff who hosted us during our site visits (Baldeu Chande, Cornelio Miguel, and Mateus Mutemba), for their support and insights in developing the work presented in this report. The work presented in this report is based in part on a Symposium organized with the collaboration of the SADC Transfrontier Conservation Area Network. We acknowledge with thanks the Deutsche Gesellschaft fur Internationale Zusammenarbeit (GIZ) implementing on behalf of the German Federal Ministry for Economic Cooperation and Development (BMZ) and the German Federal Ministry for Environment, Nature Conservation, Building and Nuclear Safety (BMUB), as well as the African Wildlife Foundation, Peace Parks Foundation and Range Wide Conservation Programs for Cheetah and African Wild Dogs for financial contributions to the Symposium, and thank attendees for participating and sharing their experiences. In connection with their contributions to the Symposium and in conceptualizing the work presented in this report, we are also grateful to Paul Bewsher, Lisa Blanken, Holly Dublin, Kathleen Fitzgerald, Patience Gandiwa, Karen Laurenson, Rob Malpas, James Milanzi, Jennifer Miller, Sean Nazerali, Alastair Nelson, and Nidhi Ramsden. Authors: Mujon Baghai, Peter Lindsey, Kristoffer Everatt and Afonso Madope 3 Contents Acronyms 5 Executive Summary 6 CHAPTER I: Partnership Models for Conservation in Africa: A Regional Review 14 1.1. Introduction 15 1.2. Model Categorization 18 1.2.1 Governance and Management 18 1.2.2 Sovereignty and Ownership 20 1.3. Three Main Models of Partnerships 20 1.3.1 Delegated Management Model 22 1.3.2 Co-Management (or Shared Management) Model 26 1.3.3 Financial-Technical Support Model 29 1.4. Pros and Cons of Each Model 33 1.4.1 Delegated Management 33 1.4.2 Co-Management / Shared Management 35 1.4.3 Financial-Technical Support 36 1.4.4 Tradeoffs among models 39 1.5. Lessons Learned 40 1.5.1 Delegated Management 40 1.5.2 Co-Management 44 1.5.3 Financial-Technical Support 46 1.5.4 General lessons for all models 47 CHAPTER II: Partnership Models for Conservation Areas Management: An Assessment of Collaborative Management Models in Mozambique 51 2.1. Introduction 52 2.2. Overview of Mozambique’s Partnerships 56 2.2.1 Gorongosa / Carr Foundation / Gorongosa Restoration Project 57 2.2.2 Niassa / SGDRN 61 2.2.3 Niassa / WCS 65 2.2.4 Limpopo / PPF 69 2.2.5 Gile / IGF 71 2.2.6 Quirimbas / WWF 74 2.2.7 São Sebastião / SBV 77 2.2.8 Zinave / PPF 79 2.2.9 Maputo Special Reserve / PPF 81 2.2.10 Banhine / PPF 82 2.3. Comparing partnerships across key indicators 83 2.3.1 Overview of partnerships and models 83 2.3.2 Financial investment 89 2.3.3 Other aspects of economic performance 93 2.3.4 Conservation Impact 95 2.3.5 Engagement with Local Communities 103 2.3.6 Quality of Staff and Level of Capacity Building 105 4 2.3.7 Improved Information and Knowledge 106 2.4. Conclusions 107 2.4.1 Key challenges and threats to effective management in Mozambique 108 2.4.2 CAs with partners are faring better than CAs without partners. 108 2.4.3 CAs with devolved models are most successful. 109 2.4.4 Government plays a key role in the success and failure of all partnerships models. 111 2.4.5 The selection of the partner—as well as the model—is key. 111 CHAPTER III: Roadmap for Collaborative Management of Conservation Areas in Mozambique 113 3.1. Introduction 114 3.2. Define a clear role and an overall vision for ANAC 118 3.2.1 The key question: regulation or implementation? 118 3.2.2 The Key Recommendation: ANAC as a Regulator and Manager of Partnerships 118 3.3. Menu of management models 122 3.3.1 Delegated management 122 3.3.2 Integrated co-management 123 3.3.3 Financial-Technical Support 123 3.3.4. Attracting and Engaging partners 124 3.3.5 Attracting and soliciting partners 125 3.3.6 Engaging and contracting partners 126 3.4. Overseeing and facilitating partnerships 126 3.4.1 Monitoring and evaluating partnerships 126 3.4.2 Supporting and facilitating partners 127 3.5. Legal framework 128 3.5.1 Legal framework for CA partnerships 128 3.5.2 Other legal issues that impact the success of CA partnerships 129 Bibliography 131 Annexes 138 Annex A: Institutional Reform of ANAC and Partnerships for Management of CAs 139 Annex B: Key Lessons Learned in Mozambique’s Collaborative Management Partnerships 145 Annex C: Methodology for Ecological Analysis of Mozambique’s Conservation Areas 149 Annex D: Details of Ecological Analysis of Mozambique’s Conservation Areas 155 Annex E: Key Roles of Proposed ANAC Directorate for Partnerships 167 Annex F: Key Elements of Each Partnership Model 169 Annex G: Criteria for Selecting Conservation Area Partners 175 Annex H: Key Items for Partnership Negotiations 176 Annex I: Legal Framework for CA Partnerships 181 Annex J: Summary of Legal Issues Relating to CA Partnerships 185 Annex K: Methodology by Chapter 189 5 ACRONYMS AFD Agence Française de Développement ANAC National Conservation Areas Agency of Mozambique CA Conservation area CBNRM Community-based natural resource management CMP Collaborative Management Partnership DRC Democratic Republic of the Congo EWT Endangered Wildlife Trust FFI Fauna & Flora International FZS Frankfurt Zoological Society GEF Global Environment Facility GoM Government of Mozambique GRP Gorongosa Restoration Project HWC Human-wildlife conflict IGF International Foundation for the Conservation of Wildlife KfW German Development Bank MITADER Ministry of Land, Environment and Rural Development MITUR Ministry of Tourism MOU Memorandum of Understanding MOMS Management Oriented Monitoring System MPA Marine Protected Area MSR Maputo Special Reserve NP National Park PA Protected area PPP Public-private partnership SBV Santuario Bravio de Vilanculos SGDRN Sociedade para Gestão e Desenvolvimento da Reserva do Niassa SPV Special Purpose Vehicle TFCA Transfrontier Conservation Area USAID United States Agency for International Development WCS Wildlife Conservation Society WWF Worldwide Fund for Nature (known in US as World Wildlife Fund) 6 EXECUTIVE SUMMARY Mozambique is endowed with a large Conservation Area (CA) estate with the potential to create significant, long-lasting benefits for conservation and for people. The protection of CAs is critical to ensure the sustainability of priceless ecosystem services—such as food, clean water, timber, non- timber forest products, medicine, climate regulation, flood protection, soil regulation, etc.—as well as the development of the economic benefits of tourism and other opportunities presented by biodiversity conservation. This is especially important in Mozambique, where over 80% of the population depends on biodiversity to sustain their livelihoods (MITADER, 2015). Managing Mozambique’s vast CAs is a costly endeavor—collaborative management partnerships are a global best practice that infuse international funding and technical expertise into this endeavor. The Government of Mozambique has recognized this by making partnerships a central element of ANAC’s mandate (Creation Decree, 2013; Financial Plan, 2015) and enshrining them as a key element of its conservation strategy (Conservation Law, 2014). The objective of this paper is to help formalize the manner in which collaborative management partnerships can best operate across Mozambique’s important network of CAs. With the support of USAID SPEED+, and together with BIOFUND, the World Bank, ANAC, and other partners, a three-part study was conducted to: 1. Perform a regional review of collaborative management partnerships in protected areas in Africa—including identifying the main models, evaluating their respective pros and cons, and drawing lessons learned for improved governance and management; 2. Assess collaborative management models in Mozambique, including significant current and past partnerships, in order to take stock of Mozambique’s experience and draw important insights and lessons learned for the future; and 3. Develop a strategic framework and roadmap to help guide and improve partnership models and practices in Mozambique’s CAs. This final report is assembled in the same sequence, with Chapters 1-3 covering each of these topics respectively. i. Background
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