CONSERVATION & LAW ENFORCEMENT IN GORONGOSA & NIASSA: A STUDY OF THE CRIMINAL JUSTICE PROCESS FOR WILDLIFE CRIME, FROM APPREHENSION TO INCARCERATION JULY 2019 This publication was produced for review by the United States Agency for International Development. It was prepared by Mozambique Monitoring and Evaluation Mechanism and Services (MMEMS) for Management Systems International (MSI), A Tetra Tech Company. CONSERVATION & ENFORCEMENT IN GORONGOSA & NIASSA: A STUDY OF THE CRIMINAL JUSTICE PROCESS FOR WILDLIFE CRIME FROM APPREHENSION TO INCARCERATION Contracted under Contract No. AID-656-C-17-00002 Mozambique Monitoring and Evaluation Mechanism and Services (MMEMS) DISCLAIMER The authors’ views expressed in this report do not necessarily reflect the views of the United States Agency for International Development or the United States Government. CONTENTS ACRONYMS ............................................................................................................ II EXECUTIVE SUMMARY ........................................................................................ 4 BACKGROUND AND INTRODUCTION TO THE BUST-TO-BARS (B2B) STUDY ...................................................................................................................... 9 CONTEXT ................................................................................................................................................................. 9 STUDY PURPOSE, RATIONALE AND USES ................................................................................................... 9 LEARNING QUESTION AND SUB-QUESTIONS ........................................................................................ 10 STUDY METHODOLOGY ................................................................................... 11 METHODOLOGICAL OUTLINE ...................................................................................................................... 11 DATA COLLECTION AND ANALYSIS .......................................................................................................... 13 STUDY PARTICIPANTS ....................................................................................................................................... 14 FINDINGS, CONCLUSIONS AND RECOMMENDATIONS .......................... 15 SUMMARY: ANSWER TO THE LEARNING QUESTION .............................. 42 ANNEX 1: SCOPE OF WORK FOR THE B2B STUDY ................................... 44 ANNEX 1I: LIST OF INFORMANTS .................................................................. 51 ANNEX 1II: SURVEY INSTRUMENTS .............................................................. 54 SEMI-STRUCTURED INTERVIEW GUIDANCE QUESTIONS FOR COMMUNITY LEADERS ....... 54 SURVEYS FOR VARIOUS INFORMANT GROUPS ...................................................................................... 55 SURVEY, CA ADMINISTRATORS ..................................................................................................................... 55 SURVEY, RANGERS .............................................................................................................................................. 58 SURVEY, DISTRICT ADMINISTRATORS ........................................................................................................ 62 SURVEY, POLICE AND OTHER ENFORCEMENT BODIES...................................................................... 64 SURVEY NGO PARTNERS .................................................................................................................................. 67 SURVEY JUDGES .................................................................................................................................................... 70 SURVEY PROSECUTORS .................................................................................................................................... 73 ANNEX 1V: THE REALITY MAP ........................................................................ 76 ANNEX V: FINDINGS, CONCLUSIONS & RECOMMENDATIONS MATRIX .................................................................................................................. 77 REVIEW OF LEARNING QUESTION AND SUB-QUESTIONS ............................................................... 77 ANALITICAL STEPS RELATED TO STUDY QUESTIONS 1 AND 2 ...................................................... 77 ANALYTICAL STEPS RELATED TO STUDY QUESTIONS 3 AND 4. ................................................... 78 THE FCR MATRIX ................................................................................................................................................. 79 ANNEX VI: DOCUMENTS REVIEWED/CONSULTED DURING LITERATURE REVIEW.......................................................................................110 RELEVANT LEGISLATION ................................................................................................................................ 110 LITERATURE CONSULTED ............................................................................................................................. 110 USAID.GOV CROSS GDA LEARNING STUDY: BUST TO BARS, FINAL REPORT 2019 | i ACRONYMS AIIM The Global Community of Information Professionals ANAC National Administration for Conservation Areas (Mozambique) B2B “Bust-to-Bars,” the process from capture of a wildlife crime suspect to fulfillment of the sentence BIOFUND Foundation for the Conservation of Biodiversity BIOTOUR USAID’s Biodiversity and Tourism Project CA Conservation Area (formally declared by the GRM) CLA Collaboration, Learning and Adapting ECO-SMART Alliance for Ecosystem Conservation Systems, Markets and Tourism (USAID) FCR Findings, Conclusions and Recommendations GDA Global Development Alliance of USAID GNP Gorongosa National Park GRM Government of the Republic of Mozambique IGBZ Integrated Gorongosa Buffer Zone activity (USAID) INGC Institute for the Management of Natural Disasters (Mozambique) IPs Implementing Partners M&E Monitoring and Evaluation MITADER Ministry of Land, Environment and Rural Development MMEMS Mozambique Monitoring and Evaluation Mechanism and Services MSI Management Systems International NGO Non-governmental organization NNR Niassa National Reserve UNODC United Nations Office on Drugs and Crime PGR Attorney General´s Office PRM Police of the Republic of Mozambique SERNAP Prisons Service ii | CROSS-GDA LEARNING STUDY: BUST TO BARS, FINAL REPORT 2019 USAID.GOV SERNIC Criminal Investigations Branch of the PRM SPEED+ Supporting the Policy Environment for Economic Development SOW Scope of Work USAID United States Agency for International Development WCS World Conservation Society USAID.GOV CROSS GDA LEARNING STUDY: BUST TO BARS, FINAL REPORT 2019 | iii EXECUTIVE SUMMARY USAID’s Biodiversity and Tourism (BIOTOUR) project includes two activities that apply integrated approaches to conserve biodiversity in Gorongosa National Park (GNP) and Niassa National Reserve (NNR). Staff from the National Administration for Conservation Areas (ANAC) and USAID and its Implementing Partners (IPs) in GNP and NNR identified the following key learning question in March 2018: Under what conditions does increased detection of environmental crimes lead to prosecution and punishment? This question was picked by USAID’s IPs in GNP and NNR because wildlife criminals frequently avoid prosecution, jail sentence, fines or jail time and return to the areas of their crime to engage in the same anti-conservation, anti-security behaviors. It is important to note that the idea behind this study grew out of USAID's commitment to Collaboration, Learning, and Adapting (CLA) with both conservation areas (CAs). Poor detection and prosecution of wildlife crimes create a sense of impunity that emboldens perpetrators and potential wildlife criminals, because rangers and communities are discouraged from taking action to report and/or apprehend suspected criminals. This undermines conservation and the security of communities in and around the CAs. In late 2018, USAID requested that its Mozambique Monitoring and Evaluation Mechanism and Services (MMEMS) contract team answered the learning question in order to help USAID’s IPs (Wildlife Conservation Society in NNR and the Gorongosa Project in GNP) better understand and operate more successully within the Mozambique’s criminal justice system, from wildlife suspect apprehension through trial, conviction and successful sentencing: from “Bust to Bars” (B2B). The team began with an in-depth review of the legal requirements from a suspect’s apprehension through incarceration. Based on this information, the team created a B2B Process Chain that describes how the process should unfold. The team then examined secondary data and interviewed stakeholders involved in the chain – law enforcement, judiciary and conservation practitioners and community leaders – in Maputo and in the areas in and around NNR and GNP to understand what occurs on a typical day. This information enabled the team to develop a B2B Reality Map. Contrasting the two maps – the first depicting what should happen and the other showing what actually does happen – highlighted areas of divergence, which the team sought to understand through stakeholder analysis, based on interview data. The team then returned to GNP and NNR with these maps and analyses to hold validation workshops with stakeholders in the field, where the assembled practitioners tested emerging hypotheses and deepened the team’s understanding of the issues.