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A Case Study:

COMMUNITY BASED COASTAL RESOURCE MANAGEMENT

IN PKWS,

Prepared by:

Kim Nong

Ministry of Environment

Kingdom of Cambodia

May 2000

Introduction

Cambodia is emerging from over two decades of war, civil strife and international isolation. Almost every facet of pre-conflict Cambodian society has been damaged. Community institutions and national infrastructures need to be rebuilt and the war has left a legacy of poverty and displaced people. Cambodia continues to grapple with its legacy, and it is nearly impossible for the outsider to comprehend the magnitude of the effect of such destruction. Since 1993, Cambodia has opened its doors to the international community, resulting in an in-flow of aid money, and in this context Canada’s IDRC began funding projects in Cambodia.

After the May 1993 elections, organised by the United Nations, the Royal Government of Cambodia created the Ministry of Environment and designated 23 protected areas, through the Royal Degree Creation and Designation of Protected Areas , under the jurisdiction of this Ministry. Cambodia’s protected areas (PA’s) system was designed to protect and conserve bio-diversity and forests: pine forests, rain and cloud forests, upland forests and forests are all found within different PA’s.

Koh Kong is one of four coastal provinces in Cambodia, and has the countries biggest area of mangrove forest. Mangrove forests are fertile, diverse saltwater ecosystems found in the coastal zone, and ensure inhabitants with food and shelter. These productive natural environments provide breeding habitat for a variety of birds, reptiles, mammals and insects. Similarly, also provide habitat to a variety of fish species, crustaceans and shellfish. New plant tissue is constantly being broken down within these forests, thereby Page 2 of 6

contributing to the life support system for vast numbers of animal consumers including humans. Human dwellers further find a primary source of income, fuel, medicine and other basic necessity for their livelihood within mangrove forests (Marschke, 1999).

Within Koh Kong province, Peam Krasaop Wildlife Sanctuary (PKWS), one of Cambodia’s PA’s, boasts a unique mangrove ecosystem consisting of 23,750 hectares. Within the same area, Koh Kapik and associated islands have been nominated as a Wetland of International Importance under the Ramsar Convention. PKWS and Koh Kapik Ramsar Site in Koh Kong have some of the best remaining examples of mangrove forests in the , as many other areas have been cleared for intensive shrimp aquaculture, large-scale charcoal production, and other purposes.

Although the coastline, particularly Koh Kong Province, is relatively unpopulated there has been a rapid increase in migration into the province, especially, in PKWS due to improved security and short-term economic opportunities. Population pressures and marketing opportunities place greater pressure on the mangroves and aquatic resources within and surrounding PKWS.

CBCRM in Cambodia

"My family has lived in this area [PKWS] for a long time, and my father is a traditional medicine man. Still, I decided to make charcoal for the last few years because I could make a lot of money. However, since I began working with the PMMR project and the Department of Environment has begun to seriously enforce illegal charcoal activities I decided to become a Park Ranger and began working to protect the environment. Even though our work is difficult, I feel really good about my work now."

Wayne Som Sak, 2000

Prior to the catastrophic Khmer Rouge (KR) regime, 1975 - 1979, Cambodia’s coastal resources were state managed and controlled. Local communities followed government policy, perhaps having little choice in the process. However, after the KR this began to change. By the late 1980’s Cambodia was beginning to make the transition from a socialist to a market-based economy, coupled with external market pressures, perhaps magnified in border provinces such as Koh Kong. Mangrove management became non-existent, with resource extraction and exploitation becoming the norm. It was with this recognition of environmental issues that the Ministry of Environment (MoE) was established in 1993. Natural resource management is one part of the MoE's role and responsibility.

PKWS is under the jurisdiction of the MoE; however, until IDRC began scoping and implementing the Participatory Management of Mangrove Resources (PMMR) project, very little conservation activities took place in this area. The PMMR project focuses on sustainable livelihood and management issues, working with provincial technical departments and local authorities and villagers on CBCRM issues.

The CBCRM program is new: it has taken time for the PMMR team to understand these concepts and to begin to carry out the CBCRM process. As a result, the capacity of the PMMR project team and local people in PKWS has improved through training courses on CBCRM and the implementation of coastal resource management has been accepted by local people step by step. For the PMMR team, CBCRM:

 is a strategy that seeks to address many issues affecting the coastal environment;

 provides villagers with the opportunity to participate with government agencies in the development planning and management of natural resources in their area;

 provides an opportunity to manage and protect local resources in order to enhance their livelihood options.

Life Situation of People in PKWS

General Information

Koh Kong town and province have both developed rapidly in response to market pressures from Thailand and to in-migration. Many residents in the mangrove forests of Peam Krasaop Wildlife Sanctuary are economic migrants and internally displaced persons from inland areas of the country, and are therefore without traditional Page 3 of 6

ties to the landscape or experience in its management. This movement of peoples in response to the post- conflict dimension of Cambodian reality is an essential element in the analysis and promotion of social and political stability in the country.

PKWS is a lush eco-system: mangroves, aquatic species and wildlife all flourish in this area. PKWS spans over parts of three districts, and has around 10 000 people living within its borders. PKWS is a coastal area, influenced by inter-tidal levels and water from highland areas. Indeed, the estuarine areas are the intersection between freshwater and saltwater, especially during the rainy season. PKWS provides favorable conditions for fishery and other resources. Many people have resided on and done various occupations for their livelihoods and are dependent upon the natural resources in this area.

The PMMR team chose to work in three communes within PKWS: Peam Krosoap, Toul Korky and Koh Kapik. The PMMR team facilitated research regarding: socio-economic status, environmental resources and issues, management planning and sustainable development. In particular, PMMR also detailed a study in Koh Srolao village of Koh Kapik commune. This work provides useful insights that can be applied to other villages within PKWS and in Koh Kong province.

The villagers of PKWS are engaged in a series of subsistence and market activities. The main jobs of villagers are fishing, charcoal production, farming, middle-person for fishing and charcoal and others.

Fishing

Many villagers in PKWS, especially in Koh Kapic, Koh Sralao and Peam Krasaop, are engaged in fishing activities. Life as a fisher is difficult, both in terms of labor and the amount of effort it takes per catch. Since 1993 fishery resources have significantly declined. Resources are affected by population increases, mangrove cutting, the use of modern fishing gear and illegal fishing activities within PKWS. Some people can easily survive from fishing resources, especially if they have access to large boats or illegal gear; however, many fishers do not have enough money to support their livelihood, subsequently becoming in-debt to the middle- person. Fishers sell their fish production to a local middle-person, not directly to the market since transportation is expensive and time-consuming and the small-scale fisher often doesn’t have enough product to sell themselves directly to the market. In return, they owe the middle-person money. Only very few fishers are able to sell their produce to Koh Kong town because they want to make more profit by themselves. Fishers who borrow money or need support from the middle-person, in return, they have to sell their product back. The other fisher, who does not owe money from middle-person, they can sell their product to any middle-person or, if they have a large boat, to the market directly.

The fishers in PKWS often fish mangrove mud crab, swimming crab, shrimp, prawn, grouper, green mullet, red snapper, and sea-bass because such species can be sold in high price. The other species are also sold in low price to the market.

The Role of the Fishing Middle-person

Middle-person's play an important role in the lives of poor people for fishing. The middle-person provides access to fishing gear, boat and cash in emergency situations to the poor people who request this. In return, the fish production is sold to the middle-person.

Many fishers borrow money from a middle-person, in order to buy food, fishing gear and materials. Sometimes, the middle-person supplies fishing gear and fuel only, which is better than borrowing cash. Many families are in debt to the middle-person from 3 000-11 000 Badt (US $ 80–$289); interestingly, the total debt of the largest middle-person is about 99 000 Badt (US $2 605). Sometimes, the middle-person might lose money if fishers are unable to return back the debt to the middle-person. Moreover, sometimes fishers try to escape from middle-person by moving to live in the other place.

Charcoal Production

Some people are earning money by cutting mangrove forest for charcoal production. The profit that they get from their jobs is not enough for living. Moreover, a lot of mangrove forests have been destroyed that is difficult for charcoal producer to find place to produce charcoal. It, however, is difficult for them to live as a charcoal producer, this means that it is not sustainable livelihood. During the process of charcoal production, many charcoal producers borrow money from middle-person in order to buy \ borrow rice for cooking and medicine in case they get sick. When the charcoal is ready, in return, they have to sell this product to the middle-person who lent them money or rice and medicine (more details information relating to charcoal production can see in the case study on Smashed Livelihoods: Life as a Charcoal Producer in PKWS ). Also, the charcoal kiln labor Page 4 of 6

can rent the charcoal kiln from the middle-person or the charcoal labor and the middle-person can share the profit made from the charcoal kiln, 50/50.

Farming

In PKWS area, there is not enough farmland for local people, except in Toul Korki commune. Farmers are found in Toul Korki commune. In this commune, this land area is more than enough for agriculture or upland farming. Rice production in this commune is produced to support their livelihoods only. Also, villagers can make money from upland farming, small fishing, animal husbandry and other small scale options.

Other Activities

Besides the jobs are mentioned above, villagers of PKWS are engaged in a series of subsistence and market activities including: wine making, water selling, goods selling, green mussel culture, shrimp or crab farming and hiring labour.

Issues in PKWS

Illegal Fishing and Charcoal Production Activities

Fishing methods and seasons have changed over time. Traditionally, gear was not overly efficient, thus ensuring that resources were not over-exploited. Prior to the KR, there were specific seasons for fishing, and laws ensuring that people did not fish during spawning were enforced. The PKWS area was firmly managed by Department of Forestry, Fisheries and Hunting officials who were able to educate fishers. At that time, mangroves species were quite abundant and there was little destructive action or clearance of mangrove forest for shrimp farming.

As the population has increased, so to has the number of fishers in the PKWS area. Especially since 1990 when the Thai market has opened up and more efficient fishing gear was introduced (often illegal i.e. cyanide fishing or illegal trawling), villagers have noticed a gradual decline in resources. Most people in PKWS no longer fish merely for subsistence purposes, and while some people continue to crab trap, other fishing gear is also used. Fishers now use nylon nets; trawlers use polysynthetic nets. Push netting and trawling in shallow waters is illegal, as is dynamite and cyanide fishing; however, illegal fishing is quite popular.

During one of the PMMR's environmental education exercises in Koh Sralao village, villagers shed the following insights into illegal fishing activities in PKWS:

"Prior we could catch more fish at the night time with small fishing gear because at that time the coastal natural resources were good condition: mangrove forest was not destroyed, low population, fishing used traditional method and all activities in this area were strong controlled by government and government has providing program to local people every months for mangrove protection and mangrove replanting (1960s). In 1970s to 1980s this area has insecurity and there are no many people live and natural resources condition are still good. At the present (1990s), fish production is dramatically declined due to the use of modern equipment, influx migration, illegal fishing, mangrove destruction and poor management. Fishers ensure that they also concern about the decline of fish production because there are now no proper management and responsibility over natural resources (Koh Sralao group meeting, March 1999)."

During the time of PMMR project implementation (1998 to 2000), through extensive facilitation and training opportunities, both local people and authority figures became interested in participatory management and protection of coastal resources. Government authorities now believe that collaboration among stakeholders is very important in environmental protection and conservation, and it can better solve existing problems. Moreover, there is an economic incentive for villagers to be involved in CBCRM initiatives – government does not have the money to protect resources without local involvement.

Lack of Management

It is difficult to manage resources in PKWS because technical officials do not have any real power to manage the resources. That is, the police and navy military are involved in resource extraction activities, and are more powerful than technical officials from the environment department. It is difficult for departments to manage or Page 5 of 6

enforce resource protection given limited budgets and funding. For example, Department of Environment staff often took bribes from charcoal kiln producers to pay for the gas and boat repair to continue charcoal destruction activities. Poverty limits both village-level and technical department officials options. Although national level policy exists both in the realm of community development and environmental protection such policy, drafted in Phnom Penh, is unrealistic in isolated places such as PKWS.

There needs to be closer collaboration between Department of Environment staff and Department of Fisheries staff in Koh Kong to encourage that appropriate policy be both developed and enforced regarding aquatic resources. In fact, the Department of Environment could learn a lot from the Fisheries department. Illegal fishing activities are barely controlled in PKWS – hence, extensive grenade and other forms of illegal fishing exist. Most importantly, more local people need to be involved in resource management and protection.

Poverty

The villagers in PKWS earn money by doing business as fishers and charcoal producers, with the exception of people in Toul Korki commune who are engaged with agriculture. The life style with small-scale fishing and charcoal production is very difficult to earn money for living: the profit that they made is only sometimes enough per daily living. Many people in Peam Krasoap are dependent on the support of middle-person. Most of the house construction in this area is not in a good condition; moreover, the water supply is not enough because some villages are located along streams. There is no water sanitation due to the lack of barrels with proper cover for protection from insects. There are a few schools with limited classes and no hospital, there is no access to land transportation. As a result, children have little chance for education or enough medication for treatment when they get sick. These problem are the result of the lack of infrastructure and management.

Work of PMMR Team

When the PMMR project started, generally, there were some difficulties such as:

1. the concept of CBCRM is new for PMMR team;

2. team leader and field research leader do not clearly understand the process of CBCRM;

3. research team members have no experience and theory on the implementation of CBCRM or PR, gender, etc.;

4. most CBCRM documents and books which were provided by CoRR, IDRC and other projects are in English. English language skills are limited and most team members do not spend much time reading these materials;

5. report writing skills and work plan preparation skills are limited.

Fortunately, through extensive training opportunities, workshops, study tours and meetings on CBCRM, together with field experience within local communities, the capacity of the team has gradually improved. The project plays very important role in the co-ordination and facilitation between National, Provincial levels and local people in order to enable players to participate in the protection and conservation of mangrove resources, fisheries and wildlife. During the last two and a half years, charcoal production has decreased and illegal fishing activities are beginning to be addressed.

CBCRM program implementation in Cambodia:

Although local people have always practice forms of CBCRM, community-based resource management programs funded by outside agencies were introduced in Cambodia in the mid-1990's. In Cambodia, very few projects have focused on coastal resources. It has taken time to gain support for CBCRM concepts; indeed, at the start of PMMR project implementation the PMMR research team was not so clear about the CBCRM program.

Through working on the project, the research team began to slowly understand the importance of local community participation and government agencies collaboration in coastal resource management. Initially, the team was not interested in CBCRM program implementation, rather the team wanted local people to participate with government agencies to manage and conserve natural resources instead of taking part in illegal resource Page 6 of 6

extraction activities. Over time, the team better understood the theories of CBCRM.

Working in such an isolated area has led to difficulties for the PMMR team in facilitating project work. It has taken time for government officials in Koh Kong to understand the work of the team, and to realize that the PMMR is working towards longer-term goals. Only when government officials began to understand the work of the team could PMMR begin to spend extensive time undertaking research and training's in the communities.

The following examples show how the CBCRM work in Cambodia is beginning.

1. As government figures have become more aware of the problems associated with extensive mangrove cutting and charcoal production, they have realized that targeting the charcoal producer is not the answer. Local authorities in one commune confiscated a middle-persons charcoal boat. This boat, loaded with charcoal to be sold in Thailand, was subsequently burned and the entire process was filmed and then televised. There is now pressure on the middle-person to stop selling charcoal to Thailand;

2. Locals have learned from elders and the PMMR team about the importance of the mangrove ecosystem and long-term problems of the lack of participatory management of natural resources. People have become more interested in protecting their environment, through a series of courses and educational sessions facilitated by the PMMR team. One local participant said that: "Before when the government agency asked me to draw my villages map, I could not draw this. But after I joined in a few training courses about, I learned how to draw my own village, its resources using place and can identify of any problems and issues by myself (1998)." A few charcoal producers have been replanting mangroves. Also, the PMMR team has observed that locals are taking initiatives and telling technical officials their ideas about how to solve issues. More than ever, local people and interested in sharing their ideas regarding participatory coastal resources management in PKWS.

3. Both government officials and local people are supporting the idea of community organizing. For example, when the Minister of Environment visited PKWS in March, 2000 he emphasized the need for local people to organize themselves around illegal fishing activities to prevent such activities from occurring; importantly, he urged technical staff to support such initiatives. The ill-fated 'new village' (see case study Smashed Livelihoods: Life as a Charcoal Producer ) is another example of one commune chief trying to organize villagers and to create a better environment. Although it will take time to find success stories, it is important to see that there are local initiatives and interest in CBCRM. Such ideas can be built upon and refined.

Prior to PMMR project implementation, collaboration between government agencies and local people was not strong regarding natural resources protection. Government agencies did not take care of the environment or support local initiatives. The few coastal initiatives that were implemented followed a conventional top-down in approach. However, through the work and activities of the PMMR team in PKWS, there has been interest and support for CBCRM initiative from national level, provincial levels and local people. PMMR team has better understanding about CBCRM, and now excellent position to facilitate CBCRM in PKWS.

Based on the PMMR experiences, it is felt that CBCRM should be tried in other parts of coastal Cambodia. Although we are just beginning the process of community involvement in coastal resources, we believe that the only way that resources will be protected is through the involvement of local communities. How CBCRM will work, exactly, remains to be seen. We want to continue this process to see what happens.