Norwegian Aid & Sustainable Development Focus on environment in NORAD and decentralised management of natural resources in rural development. Project case from Zambia. Maiken Sele Department of Political Science, University of Oslo Spring 2003 2 Preface There are first and foremost four men that I owe a lot to; my adviser Per Kristen Mydske, Magne Grøva at the Norwegian Embassy in Lusaka, Tindi Chimba at the CBNRM-section of SLAMU and Brian Child, former TA at SLAMU and currently consultant at Development Services and Initiatives, Southern Africa. Without their contributions, encouragement, positive feedback and interest, I can’t imagine how I would have managed to write this thesis. My deepest gratitude goes to you. Thanks to everybody at SUM for including me in an environment which has been inspiring and very useful. Special thanks go to Bente Herstad, Desmond McNeill, Jennifer Schirmer, Hal Wilhite, Alida Boye, Kristoffer Ring and Baard Johannessen for support and advice on different issues. Fellow SUM students, Kit-Fai Næss and Endre Stiansen receive thanks for contributing with funny comments and making my days at SUM excellent! Thanks also to William Lafferty for connecting me with SUM, and for constructive inputs in the finalisation of this thesis. My friend and fellow student Oddny has given me good feedback and ideas during the last half of the work period, and Solveig and Lars during the early period, thank you! In addition I wish to thank the following people for all their help, positive interest and accommodating attitudes: Thor Larsen, Noragric, Knut Opsal, Jon Heikki Ås, Wenche Gulnes and Tove Strand at NORAD in Oslo, Regine Andersen at FNI, Odd Arnesen and Einar Braathen at NIBR, Rasmus Hansson, Leif Jon Fosse and Rogers Lubilo at WWF (Norway and Zambia), Gunnar Jordfald at SNT, Thomas Eid, MD and Jesse Ribot, WRI. In Zambia there were a lot of people who were helpful and contributed with information, and made my stay very pleasant: Jakeh Banda, Ngamanya Banda, Helene L. and David Chirwa, Rodgers Lubilo, Mr. and Mrs. Matokwani, Moses Mukumbi, Charles Skabala, Thomas Mushinge and Inger S. Grøva. My dear friend Vutiwe Zulu also made my stay wonderful, I very sorry that we all lost her and the end of last year. Thanks also to all informants who preferred anonymity; you all know who you are and how grateful I am. Finally, thanks to friends and family for their encouragement and patience. Maiken Sele, Oslo, March 2003. 3 Preface _________________________________________________________________________2 List of abbreviations___________________________________________________________________ 5 1. General introduction.______________________________________________________________ 6 1.1 Norwegian Development Co-operation. ________________________________________ 7 1.2 Research goals and objectives ________________________________________________ 8 1.3 Suitability of the Luangwa Integrated Resource Development Project/South Luangwa Area Management Unit as a Case Study ______________________________________ 14 2. Empirical theme; the sustainable use of natural resources in rural development through Aid, Decentralisation/CBNRM and international conventions. _______________________________ 16 2.1 Introduction______________________________________________________________ 16 2.1.1 Zambia’s political, economic and social development situation _______________________ 16 2.2 Historical background, development and understanding of the concept Sustainable Development (SD). ________________________________________________________ 17 2.2.1 Basis from ‘Our Common Future’ by the World Commission on Environment and Development (WCED). ______________________________________________________ 20 2.2.2 The development of the Convention on Biological Diversity (CBD). __________________ 22 2.2.3 The Convention on International Trade in Endangered Species Of Wild Fauna And Flora (CITES.) _________________________________________________________________ 23 2.3 Norwegian national strategies _______________________________________________ 24 2.3.1 Report no.19 to the Storting (1995-96) “A changing world –Main elements of Norwegian policy towards developing countries”. __________________________________________ 25 2.3.2 The Strategy for Environmental Development Co-operation (SEDC) __________________ 26 2.4 Decentralised management of natural resources as a means in rural development – specifically community-based natural resource management (CBNRM).____________ 28 2.4.1 Historical background; Colonial history _________________________________________ 28 2.4.2 Community-based Natural Resource Management (CBNRM). _______________________ 29 2.5 Specific empirical case: the LIRDP/SLAMU in Zambia. _________________________ 31 2.5.1 The project area in the Luangwa Valley _________________________________________ 31 2.5.2 The different phases of the Project. _____________________________________________ 33 2.5.3 Former and new organisation _________________________________________________ 33 2.5.4 Analysis of the case study project ______________________________________________ 36 3. Theory and research methods ______________________________________________________ 39 3.1 Theory - introduction ______________________________________________________ 39 3.1.1 Decentralisation Theory/ Community-based Development Theory ______________________ 40 3.1.2 Implementation theory - Decision oriented and process oriented approaches ______________ 43 3.1.3 Institutional theory. _________________________________________________________ 45 4 3.2 Research methods – introduction ____________________________________________ 48 3.2.1 Choice of research methods___________________________________________________ 48 3.2.2 Qualitative, quantitative or both?_______________________________________________ 49 3.2.3 Fieldwork with Qualitative Interviews. __________________________________________ 51 3.2.4 Research in a different culture - considerations on how to behave._____________________ 54 3.2.5 Anonymity versus reliability __________________________________________________ 57 3.3 Concluding remarks _______________________________________________________ 58 4. Analysis _______________________________________________________________________ 60 4.1 Introduction______________________________________________________________ 60 4.2 The Integration of Environmental Factors in NORAD ___________________________ 61 4.2.1 The Strategies - Report no.19 to the Storting (1995-96), NORAD invests in the future 2000- 2005, & SEDC. ____________________________________________________________ 64 4.2.2 Institutional features of NORAD_______________________________________________ 68 4.2.3 The organisation of NORAD – role of the leadership and internal dynamics _____________ 70 4.2.4 Institutional culture and values in NORAD_______________________________________ 72 4.2.5 Any solutions? _____________________________________________________________ 76 4.3 The roles of Conventions in NORAD’s work and for SLAMU. ____________________ 79 4.3.1 The convention on Biological Diversity (CBD) ___________________________________ 79 4.3.2 The convention on trade in endangered species of flora and fauna (CITES). _____________ 81 4.4 The importance of surrounding conditions for SLAMU. _________________________ 84 4.4.1 Zambian national political situation and the decentralisation strategy __________________ 84 4.4.2 The significance of NORAD for SLAMU________________________________________ 92 4.5 Is SLAMU a decentralisation venture? ________________________________________ 97 4.6 The role of SLAMU and its CBNRM-programme for sustainable development and empowerment. ___________________________________________________________ 105 5. Conclusions and tentative recommendations _________________________________________ 111 5.1 On the integration of environment in NORAD_________________________________ 112 5.2 On the Role of NORAD, Zambian Authorities, Sustainable Development and International Conventions in SLAMU _______________________________________ 117 5.3 Final concluding remarks__________________________________________________ 121 Bibiography ___________________________________________________Error! Bookmark not defined. Appendix 1 Figures _________________________________________________________________ 128 Appendix 2 List of interviews __________________________________________________________ 130 5 List of abbreviations ADC = Area development committee ADMADE = The Administrative Management Design (first called Lupande development project) CAMPFIRE = Communal Areas Management Programme for Indigenous Resources (Zimbabwe) CBD = the Convention on Biological Diversity CBNRM = Community-based Natural Resource Management CITES = the Convention on International Trade in Endangered Species of Flora and Fauna CRB = Community Resource Board FAO = Food and Agriculture Organisation (UN) GRZ = Government of the Republic of Zambia IUCN = International Union for the Conservation of Nature and Natural Resources/The World Conservation Union LGMA = Lupande Game Management Area LIRDP = Luangwa Integrated Resource Development Project MFA = Ministry of Foreign Affairs NORAD = Norwegian Agency for Development Co-operation SD = Sustainable Development SEDC = Strategy for Environment in Development co-operation (my abbreviation) SLAMU = South Luangwa Area Management Unit SLNP = South Luangwa National Park UNCED = United Nations Conference on Environment and Development UNDP = United Nations Development Programme UNEP