Decentralization and Biodiversity Conservation
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lioneple3ueilnr zini ISUJ3 Aq pel!p3 Public Disclosure Authorized Public Disclosure Authorized IV.. Public Disclosure Authorized ot ~~ ~ ~ ~ ~ ~ ~ ~ ~ tB N)OIVHONO IJlIJ Public Disclosure Authorized p AN,~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ NO r-Ss~~~~~~~~~~~~~~~~~~~~~~~~~~uJaP S ~s rcD I !s~i Decentralization and Biodiversity Conservation A World Bank Symposium I Decentralization and Biodiversity Conservation Edited by Ernst Lutz Julian Caldecott The World Bank Washington, D.C. © 1996 The InternationalBank for Reconstruction and Development/THE WORLDBANK 1818 H Street, N.W.,Washington, D.C. 20433, U.S.A. All rights reserved Manufacturedin the United States of America First printing December 1996 The findings, interpretations,and conclusionsexpressed in this study are entirely those of the authors and should not be attributed in any manner to the World Bank, to its affiliated organizations,or to membersof its Board of Executive Directors or the countries they represent. The artwork on the front cover was done by Tomoko Hirata. The material in this publication is copyrighted.Requests for permission to reproduce portions of it should be sent to the Office of the Publisher at the address shown in the copyright notice above.TheWorld Bankencourages disseminationof its work and will normally give permis- sion promptly and, when the reproductionis for noncommercialpurposes, without asking a fee. Permission to copy portions for classroom use is granted though the Copyright Clearance Center, Inc., Suite 910,222 RosewoodDrive, Danvers, Massachusetts,01923 U.S.A. For a copy of Update describing new publications,contact the DistributionUnit, Office of the Publisher,The World Bank, 1818 H Street, N.W.,Washington, D.C. 20433 U.S.A., or Publications,The World Bank, 66 avenue d'Iena, 75116 Paris, France. A catalog and ordering informationare also availableon the Intemet at http:/ /www.worldbank.org. Library of CongressCataloging-in-Publication Data Decentralizationand biodiversityconservation / editors, Ernst Lutz and Julian Caldecott. p. cm. - (A World Bank symposium) Includes bibliographicalreferences and index. ISBN 0-8213-3688-6 1. Biologicaldiversity conservation-Case studies. 2. Decentralizationin management-Case studies. 3. Natural areas-Management--Case studies. 4. National parks and reserves-Management--Case studies. I. Lutz, Ernst, 1949- . II. Caldecott, Julian Oliver. III. Series. QH75.D39 1996 333.9516-dc2O 96-30475 CIP iv Contents Foreword ix Acknowledgments xi Contributors xii I Introduction I Ernst Lutz and Julian Caldecott Ten Country Studies and Analysis I Failed Past Attempts to Conserve Biodiversity I Decentralization as a Process 2 The Contrast of Centralizationand Decentralization 2 References 3 2 Colombia 7 Eduardo Uribe The ColombianNational Park System 7 Rural Development Activities 10 Resolving Conflict between Developmentand Conservation 11 Summary and Conclusions 12 Case Studies in Colombia 13 Notes 15 References 16 3 Costa Rica 19 Julian Caldecott and Annie Lovejoy Strategic Planning 20 The Conservation Area System 21 The National BiodiversityInstitute 22 Conclusions 23 Case Studies in Costa Rica 24 Notes 26 References 26 v vi Contents 4 India 29 Shekhar Singh Decentralization within the Government 29 Decentralizing Management to the Community 31 Management of Wildlife Protected Areas 31 Rural Development 33 Conflict and Resolution 34 Conclusions 35 Case Studies in India 36 Note 40 5 Indonesia 43 Julian Caldecott Policies and Biodiversity 45 Planning and Environmental Threat 46 The Role of Integrated Conservation Development Projects 47 The Role of Conservation NGOS 48 Conclusions 49 Case Studies in Indonesia 49 References 51 6 Kenya 55 Joyce H. Poole and Richard E. Leakey A Difficult History of Decentralization 56 Trends Affecting NGOS, Communities, and Private Landowners 57 Decentralization of Important Functions 58 Competition from Other Sectors 58 Rural Development and Habitat Conservation 60 Summary and Conclusions 60 Case Studies in Kenya 61 Notes 62 References 63 7 Nepal 65 Uday R. Sharma and Michael P. Wells A Brief Conservation History of Nepal 65 Institutions for Conservation in Nepal 68 Reconciling Protected-Area Management with Social and Economic Development 68 Protected Areas and Tourism 71 Conclusion 73 Case Studies in Nepal 73 References 75 8 Nigeria 79 Julian Caldecott and Andrew Babatunde Morakinyo People and Administration 79 Policies and Interest Groups 80 Governmental Management of Conservation Areas 81 Nongovernmental Management of Conservation Areas 84 Conflicts between Conservation and Rural Development 84 Conclusions 85 Contents vii Case Studies in Nigeria 86 Notes 89 References 89 9 Philippines 93 Maria Dulce M. Cacha and Juliani Caldecott The Local Government Code of 1991 94 Pre-1992 Legislation 95 The National Integrated Protected Areas System Law of 1992 96 Management of Protected Areas under NIPAS 96 Funding Sources for Conservation 98 Management and Impact of the DFNS Program 99 Conflict between Development and Conservation 101 Conclusions 102 Case Studies in the Philippines 102 References 105 10 Russia 109 Margaret D. Williams and Michael P Wells Russia's Protected Areas 110 Financial Resources for the Protected Areas 112 The Soviet Legacy of Economic and Environmental Mismanagement 113 Changing Attitudes toward Protected Areas 114 Emerging Positive Signs 115 Expanding Roles for NGOS 117 Alternative Funding Sources for Protected Areas 119 The Role of Foreign Development Assistance 119 Conclusions 120 References 120 11 Zimbabwe 123 Brian Child The Roots of CAMPFIRE: Lessons from Game Ranching on Private Land 123 Transferring Lessons to Communal Areas 124 CAMPFIRE'S Goals 125 Can Decentralized Management Work? 131 Is Fiscal Devolution Sufficient? 132 Conclusions 133 Case Studies in Zimbabwe 134 References 137 12 Good Governance in Model and Real Countries 139 Julian Caldecott Methods 139 Findings 142 Conclusions 144 References 144 13 Analysis of World Bank and GEF Projects 145 Ajit Banerjee and Ernst Lutz Strategy and Methods 145 Decentralization of Habitat Conservation Projects 146 viii Contents Conflict Resolution 151 Effectiveness of Habitat Protection 151 Conclusions and Recommendations 152 Case Study: Local Community Land Management (Terroir) in West Africa 152 References 154 14 Conclusions 155 Julian Caldecott and Ernst Lutz Links to Conservation Effectiveness 157 Final Observations 159 Notes 161 References 163 Index 165 Figures 7-1 Visitors to Nepal, 1964-92 71 12-1 Relationships Modeled between Societal Levels 140 14-1 Pathways to Poverty Avoidance in a Typical Humid Tropical Conservation Project Area 162 Tables 4-1 Management of Wildlife Protected Areas (WPAS) in India 32 5-1 Government Organization in Indonesia 44 7-1 Name, Size, and Date Established of Protected Areas in Nepal 66 9-1 Sectoral Arrangements for Habitat Conservation in the Philippines 97 11-1 Marketing of Trophy Quotas in CAMPFIREDistricts in Zimbabwe, 1990-93 129 11-2 Wildlife Income and Expenditure for the Twelve Primary CAMPFIREDistricts in Zimbabwe, 1989-93 130 11-3 Percentage of the Twelve Primary CAMPFIREDistricts That Received Excellent Performance Scores in Zimbabwe, 1989-92 131 12-1 Indicators of Decentralized Development and Conservation in an Ideal Country 141 12-2 Scores of Real Countries Using Ideal Country Indicators in Table 12-1 143 12-3 Decentralized Development and Conservation Scores of Real Countries Relative to an Ideal Country 143 13-1 Summary of Decentralization and Habitat Conservation Scores for Projects Approved before 30 June 1992 148 14-1 Changes in National Conservation Institutions in Select Countries 156 Foreword Integrated rural development projects implemented are often borne locally, whereas its benefits may ac- during the 1970s and 1980s have had mixed results, in crue to regional, national, and global levels of society. part because they were administered from central Moreover, ecosystems vary greatly in their ability to project offices that had limited knowledge of local yield local revenue or to support alternative land use, conditions and infrequent contact with rural commu- sustainably or otherwise. Consequently, there are no nities. Partly in response to this experience, a current simple, universal solutions, and it is hard to generalize trend in many countries is toward decentralized devel- about what will or will not work in rural development opment and administration. A key policy question that or conservation for any given location. has emerged is whether decentralization fosters rural The diverse experience reported in the country development and whether it does so in ways that are studies and project analyses shows that decentraliza- environmentally and socially sustainable. tion and conservation are complex, interactive pro- This and related questions are the topic of a World cesses. A conclusion from the historical reviews of Bank research project, "Decentralization, Fiscal Sys- country experience is that centralized, top-down con- tems, and Rural Development." This volume is one of servation is seldom effective, except where large bud- the results of that investigation. It contains ten country gets are available for enforcement and the society studies, each including two or three best-practice case concerned is willing to accept a rather undemocratic studies. Also presented are analyses of thirty-two conservation process. The more recent experience of projects chosen to shed light on the complex process countries where new responsibilities have been given by which