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Governance of protected and conserved
areas in Tanzania
Phase 1 workshop as part of an IUCN-assisted process of assessment and action
to enhance governance for conservation and sustainable livelihoods
Dar es Salaam, Tanzania
21-22 March 2017
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Background Tanzania is home to tens of millions of people and is one of the world’s biologically richest countries, boasting hundreds of endemic species and sub-species (primates, antelopes, reptiles, amphibians, invertebrates and about 11,000 species of plants, many of which endemic) and ecosystems, including 9 major river catchments, mountains, drylands, savannah and coastal and marine areas. These diverse ecosystems support the national economy via agricultural, fishery and livestock production, forest production (including for domestic energy consumption) and the tourism industry (estimated at various times to amount to 10% to 30% of national GDP1).
The system of official protected areas of Tanzania is also vast, ranging from grasslands to the tallest mountain of Africa and including four natural World Heritage Sites: Ngorongoro Conservation Area, Kilimanjaro National Park, Selous Game Reserve and Serengeti National Park. The first official marine protected area of Tanzania, Mafia Island National Park, was declared in 1995. Since then, coverage of protected marine ecosystems has continued to expand.
Tanzania has committed to very ambitious national targets for conservation, and to the Strategic Plan
for Biodiversity 2011-2020, adopted by the parties to the Convention on Biological Diversity. Aichi
Target 11, in particular, guides Tanzania’s efforts to reach these ambitious goals in terrestrial and inland
waters, and in coastal and marine environments, and to achieve both the quantitative and qualitative
elements of the Target. These concern not only coverage and representation of those areas of particular
significance for the conservation of biodiversity and ecosystem services, but to ensure that these are
equitably governed and effectively managed, ecologically connected and integrated into the wider
landscapes and seascapes.
Tanzania participated in the Capacity Development Workshop for Africa on Achieving Aichi Biodiversity
Targets 11 and 12 held in Entebbe from 21-24 March 2016, and presented an update on status of
achievement of these targets as well as priority actions for moving forward. The draft table and the
priority actions for Tanzania extracted from the report of the workshop are contained in Annex 2.
Tanzania highlighted the achievement of the coverage targets (35.5% terrestrial, and 13.5% of marine
territorial area) that far exceed the minimum targets established in Aichi Target 11. But the Tanzanian
delegation also drew attention to their findings (amongst others) that:
30% of Important Bird Areas in Tanzania remain unprotected;
ecologically important areas including forest land acting as buffer zones and wildlife corridors
for connectivity lack effective management and legal protection;
areas surrounding marine protected areas were inadequately protected;
approaches for equitable sharing of benefits were not comprehensive, affecting resource
utilization for local communities and opportunities for combatting illegal trade;
there was a need for greater participation and involvement of communities in governance of
protected areas;
1 MNRT (2008). Tanzania Forest Sector Outlook Study: 2008-2018. Dar es Salaam: Forestry and Beekeeping Division
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village land-use plans were not aligned with maintaining the integrity of important corridors;
embracing a broader suite of protected area governance types would provide greater
opportunities to achieve conservation and connectivity at the scale of the wider landscape and
seascape, and also to ensure that the most important biodiversity is protected.
Eight priorities for future action to enhance implementation by 2020 were identified, including:
(i) Establish new marine protected areas in biodiversity hotspots and fragile ecosystems; (ii) Expand Wildlife Management Areas (WMAs) and Forest Nature Reserves to improve wildlife
corridors connecting PAs; (iii) Promote new protected areas integrating wider land and seascape; (iv) Review policies, plans and strategies aimed at managing terrestrial and marine protected
areas; (v) Strengthen measures to limit illegal exploitation of resources in terrestrial and marine
protected areas; (vi) Promote regional cooperation on protection and conservation of transboundary terrestrial and
marine protected areas; (vii) Promote the ecosystem approach in marine protected areas; (viii) Enhance institutional, research and human capacity on the management of terrestrial and
marine protected areas.
While a variety of government agencies are in charge of governing the system of official protected areas, the overall coverage of protected areas (see Table I) and conserved areas – broadly understood here as areas conserved de facto, with or without the intervention of a conscious managing body – may be substantially larger. Crucially, official protected areas and the various other forms of conserved areas and territories ought to be taken into consideration as a system, as they are mutually supportive and beneficial. For instance, village forest reserves and community conserved wildlife habitats positively interact with state protected areas to provide areas for biological connectivity and wildlife dispersal. While also meeting gaps in protection, these enhanced areas for conservation also provide opportunities for the development of tourism and other livelihoods.
The actions and priorities identified in the CBD workshop are largely aimed at addressing these gaps and
allowing for these opportunities to be developed. One of the most important issues at the heart of this
enhancement concerns rights, governance and equity, still some of the most poorly addressed elements
of Target 11 anywhere in the world. The identification by Tanzania of specific steps to address improved
governance provides an excellent rationale for moving forward with a programme. At the CBD COP 13
in Cancun in December 2016 Decision XIII/2 invites Parties to make concerted efforts to address the
priorities identified in the regional workshops, and also invites IUCN to work with Parties and other
Governments to contribute to the assessment of progress in the implementation of Aichi Biodiversity
Target 11. https://www.cbd.int/doc/decisions/cop-13/cop-13-dec-03-en.doc
Governance for conservation of nature Since 2000, international policy for conservation and sustainable development has been extensively
engaging with governance issues. Among the significant examples of such policies are the Durban
Accord and Durban Action Plan developed at the 5th IUCN World Parks Congress (WPC 2003); the CBD
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Programme of Work on Protected Areas (PoWPA) (2004), numerous IUCN Resolutions at World
Conservation Congresses (2004, 2008, 2012, 2016), the UN Declaration on the Rights of Indigenous
Peoples (2007) and several important decisions of the Parties to the Convention on Biological Diversity,
notably the adoption of the Strategic Plan for Biodiversity 2011-2020 referred to above and its Aichi
Targets (2010).
From all these policy advances, the following key messages powerfully come to the fore:
Conservation needs the capacities, concerns and engagement of society as a whole, not of expert
professionals or government officials only;
More attention must be paid to the crucial ties between biological and cultural diversity, as well as
the conditions that allow indigenous peoples and local communities to be empowered for
conservation;
Conservation needs equity: a fair sharing of the costs and benefits of conserving biodiversity and
managing natural resources in a sustainable way;
Conservation needs to respect human rights and indigenous peoples’ rights, and do all that is
possible not to harm people and seek a positive impact on livelihoods.
These messages are reaffirmed and strengthen at subsequent COPS in 2012, 2014 and 2016.. Possibly the most important affirmation of the value of governance for conservation, however, came at the IUCN World Parks Congress 2014 in Sydney, Australia, (WPC 2014) where governance diversity, quality and vitality were highlighted as fundamental to conserve the world natural and cultural diversity. At the same Congress, , recommendations were made to further the processes of governance assessment, evaluation and enhancement for every country in the world, and to achieve the ambitions set out be the CBD.
IUCN and the ICCA Global Support Initiative Since WPC 2014, the CBD Secretariat has been instrumental in supporting information sharing and
capacity building processes on governance for conservation in through a suite of regional workshops. It
is clear from this that governance diversity, quality and vitality are far from being everyday terms in
conservation circles or in action on the ground. This is why specific initiatives are continuing to promote
enhanced capacity and action concerning governance issues. One such initiative is the ICCA Global
Support Initiative (GSI) funded by the German Federal Ministry for Economic Cooperation and
Development (BMZ) and implemented by UNDP GEF SGP, the IUCN Global Protected Areas Programme,
the ICCA Consortium and UNEP-WCMC.
While covering activities in 28 countries, the IUCN component of the work programme will focus on six countries, including Tanzania, Ecuador, Iran, Indonesia, Philippines and Georgia. In close collaboration with the government of Tanzania, civil society organizations, the ICCA Consortium, UNDP GEF Small Grants Programme and the IUCN’s Regional Office in the East and Southern Africa Region, the IUCN is engaged to support a process to better understand the directions that Tanzania wishes to make in fulfilment of its priorities to enhance governance of protected and conserved areas as identified in the CBD Regional Workshop referred to above. Through this work, the partners will plan and organize a process of governance assessment, evaluation and action for its system of protected and conserved areas. While the process is oriented towards recommendations and enhancements at the national level, it is expected that field work may concentrate in one or more pilot regions or sub-regions. The process
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will commence with a planning exercise (the topic of this background paper), that will lead ultimately to a more comprehensive workshop and discussion at a national and even regional scale later in the process. The process will follow the IUCN WCPA Best Practice Guidelines on Governance of Protected Areas--
From understanding to action,2 and it will start with an initial meeting on 21 – 22 March, 2017 in Dar es Salaam. A list of institutions and individuals to be invited has been preliminarily identified and is currently being contacted.
Governance of protected and conserved areas in Tanzania: Phase I Following the methodology illustrated in Part II of the IUCN WCPA Best Practice Guidelines, the national
process contemplates four phases, starting from a preparatory Phase I where the representative of key
national rightsholders and stakeholders meet to discuss and agree upon the process plan and to
establish a small Governance Planning Team to remain in charge of guiding the process and overseeing
the resulting action. Figure 1, reported below, illustrates the four Phases in the process.
Overall objective of Phase 1 Planning Meeting in Dar es Salaam, 21 – 22 March, 2017 To enhance understanding of “governance for conservation” among key national actors in Tanzania and promote the self-identification of a “Governance Planning Team” for guiding the process of governance assessment and action for the system of protected and conserved areas in the country.
2 Borrini-Feyerabend, G., N. Dudley, T. Jaeger, B. Lassen, N. Pathak Broome, A. Phillips and T. Sandwith (2013).
Governance of Protected Areas: From understanding to action. Best Practice Protected Area Guidelines Series No. 20, Gland, Switzerland: IUCN. xvi + 124pp.
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Agenda of the meeting
Time Tuesday March 21 Wednesday March 22
09.00-09.30 Welcome coffee Welcome coffee
09.30-12.30
Tanzanian government + IUCN EARO and the GPAP: welcome and
outline of joint initiatives in Tanzania
IUCN delegate-- Governance for the conservation of nature—basic
concepts and IUCN and CBD recommendations for policy and
practice
Tanzania Government rep.-- Governance of protected areas in
Tanzania
Civil society representative – Governance of conserved areas in
Tanzania
IUCN delegate and IUCN Governance Officer— Assessing and
enhancing the diversity, quality and vitality of governance for
conservation—a process outline
The identified Governance Team meets
and plans Phase II and III of the
assessment and enhancement process.
Lunch
14.00-15.30
Small group work on assessing and enhancing governance of
protected and conserved areas in Tanzania
Coffee
16.00-18.30
Group work results: presentation and discussion
Facilitated identification of the Governance Team for Tanzania
Closing of the meeting
Expected results It is expected that this Phase 1 meeting will result in:
A shared understanding of issues and processes crucial for “governance for conservation” among key actors concerned with the system of protected and conserved areas in Tanzania;
A shared understanding of the phases of a standard process of assessing, evaluating and taking action to enhance governance for a national system of protected and conserved areas (a process of “governance assessment and action” for short).
Self-identification of a “Governance Planning Team” for guiding the process of governance assessment and action in Tanzania;
Identified needs for information, tools and technical expertise to be sought after and gathered in Phase 2 of the process;
Identified key rightsholders and stakeholders in governance of protected and conserved areas in Tanzania to be contacted and informed about the forthcoming larger workshop foreseen in Phase 3.
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Participants
Participants in the Phase I meeting are expected to include key individuals in representation of the
institutions and social actors in charge of governing protected and conserved areas in Tanzania. People
from both government and civil society backgrounds and concerned about terrestrial and marine and
coastal areas will be invited. Academics and professional advisors and facilitators dealing with
governance issues will also be invited to participate in the meeting, as well as data management experts,
and especially managers of spatial data (GIS systems in land use, conservation, administration and
governance issues, etc.). The initial meeting will last one day and will be followed by a smaller planning
event among the individuals that will form Tanzania’s Governance Planning Team.
Contact Doyi Mazenzele, Project Officer, IUCN Tanzania Office House No. 2 Floor 2 Left Wing, Adjacent to French Embassy on Kilimani Street, Kinondoni P. O Box 13513, Dar es Salaam - Tanzania Tel. +255 22 266 9084/5 Mobile: +255 713 110 993 +255 767 701 719 www.iucn.org
References
Governance of Protected Areas: From understanding to action, IUCN Best Practice Protected Area Guidelines Series No. 20, 2013
A primer on governance for protected and conserved areas, 2014
Recognising and supporting territories and areas conserved by indigenous peoples and local communities: Global overview and national case studies, CBD Technical Series no. 64, 2012
Final report of the CBD Capacity Building Workshop for Enhancing Progress towards achieving Aichi Targets 11 and 12 Final Report: UNEP/CBD/PAWS/2016/1/3
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Annex 1. Organizations governing areas and territories for conservation in Tanzania3 Organisation Role/Mandate Tanzania National Parks (TANAPA)
Parastatal organization responsible for the management of National Parks
Ngorongoro Conservation Area Authority
Parastatal organization responsible for the management of Ngorongoro Conservation Area.
Tanzania Wildlife Authority (TAWA)
Responsible for the management of Game Reserves (GRs), Game Controlled Areas (GCAs) and all wildlife outside protected area boundaries and Wetlands
Wildlife Division (WD) The Wildlife Division facilitates the establishment of Wildlife Management Areas (WMAs), creates awareness and disseminates information about wildlife management to the village communities in their village lands and wildlife policy.
Communities Manage Community Forests and Forest Reserves through participatory forest management (PFM) – co-management with government; manage wildlife management areas (WMAs)
Village council Manage Village Land Forest Reserves (VLFR) and Beach Management Units (BMU)
District council Manage District Forest Reserves and Coastal Fisheries Management Areas (CFMA)
Tanzania Forest Service (TFS) Executive Agency with the mandate for the management of national forest reserves (natural and plantations), bee reserves and forest and bee resources on general lands.
Private Organizations/ individuals
Some private organizations or individuals run estates managed for conservation benefits, e.g. Grumeti Reserve
Marine Conservation Unit (ZNZ) (Department of Fisheries Development)
Coordinates the management of all marine conservation areas in Zanzibar and promotes coordination with other forms of marine managed areas (MMAs) such as privately managed sanctuaries
Department of Forests and
Non-Renewable Resources
Zanzibar (DFNR)
Manages and conserves 7 parks and reserves in Zanzibar, mostly forest and including mangrove forests.
Marine Parks and Reserves Unit (MPRU)
Semi-autonomous governing body responsible for the formulation of policies, management and administration of Marine Protected Areas (MPAs) in Tanzania. Currently, there are three (3) marine parks and fifteen (15) marine reserves operating under MPRU
3 adapted from IUCN, JRC and AWF, East African Community State of Protected Areas Report, unpublished draft
2017.
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Annex 2.
Tanzania’s inputs into the report of the Capacity Development Workshop for Achieving Aichi
Targets 11 and 12 held in Entebbe, Uganda from 21-24 March 2016.
Extract of UNEP/CBD/PA/WS/2016/1/3 Page 99
DRAFT COUNTRY TABLES OF THE STATUS, GAPS AND OPPORTUNITIES FOR AICHI BIODIVERSITY
TARGETS 11 AND 12
32. United Republic of Tanzania Element of
Targets 11 and
12
Status Gaps Opportunities
Quantitative
aspects
A total 77 IBAs
covering 168,000 km2
has been designated
as IBAs sites. Out of
these 65% of the 77
site are in protected
areas.
A total land area of
731,806.24 km2 has
been set aside as
protected areas of
different categories
equivalent to 33.5%
of terrestrial land of
the country.
Tanzania has set
aside a total area of
4,394.74 km2 as
Marine protected
equivalent to 13.5%
of marine territorial
water of the country.
22 IBAs out of 77 IBAs
site which is about 30%
of total IBAs have no
legal protection and
the their habitat are
degraded
Ecological sensitive
areas of 30,000 km2
both in general land
forest land acting as
buffer zone and
Wildlife corridors
connecting PAs lack
management have no
legal protection and
management plans.
Ecological sensitive
areas adjacent MPAs
have no legal
protection.
4 IBAs out of 22 will be given legal status to
increase legal protection of national IBAs.
4 Wetland protected areas as new categories of
PAs will increase PAs coverage and revenue for
PAs system to meet conservation needs.
6 candidate of Forest Nature Reserve within the
proposed 30,000 km2 will improve wildlife
corridors connecting PAs and reduce threats to
endemic species in the regions.
Expanding number of FNR at the tune 30,000 km2
will improve hydrological flow and increase the
carbon stock
Inclusion of ecological sensitive areas adjacent to
marine PAs will secure more breeding sites of fish.
Ecological
representation
Existing national PAs
represent terrestrial
wildlife and forest
parks and reserves
estimated to cover
40% of land area
where terrestrial is
33.5% and marine
PAS is 13.5 %
terrestrial water of
the country.
The existing categories
of PAs lack other form
categories of protected
areas which have the
role too in
conservation and
protection of habitats
for the threatened
Application of other categories of protected areas
including integration of wider range of landscape
to increase PAs connectivity and
New PAs will improve national efforts in climate
change mitigation measures
Improve coverage of PAs beyond 40% in terrestrial
and 10 in marine PAs will improve livelihood of
local communities
10
Areas
Important for
Biodiversity
Areas
Important for
Ecosystem
Services
55 Important areas
within NP and GR
have good protection
status compared to
other categories of
conservation areas.
22 Important areas for
biodiversity area have
no legal protection and
are subjected to
encroachment and
land degradation.
Wetland Regulation formulation will provide
protection of unprotected IBAs and wetland areas.
New wetland PAs will improve connectivity of PAs
as well as improve protection of threatened and
endemic species to the areas.
Inclusion of all 77 will provide more opportunities
to birdwatchers and researchers.
Management
Effectiveness
assessment
Improvement
16 National Parks and
5 Nature reserves
have established in
consultation with key
stakeholders and all
have GMPs that guide
how to management
the areas in
participatory manner.
28 Game Reserves, 38
WMA, 42 GCA and
more than 500 Forest
Reserves operate in
most case without
GMPs due to financial
constrain.
Extending the application of other categories of
PAs and strengthening GMPs practice to all PAs
will provide best possible foundation for achieving
the management objectives that are clearly
stipulated in the document.
Equity
Local communities
living within or
adjacent to GR or
running WMA get
25% of revenue
accrued from
hunting revenue
while NP Board of
Trustee set aside
fund for outreach
programme with the
aim of supporting
local communities in
each park.
Equitable sharing
approach lack proper
modalities to be
applicable to all sectors
extracting resources
surrounding local
people.
Applying equity principle will improve incentive to
the local people in management of PAs and
preventing illegal trade on natural resources.
Connectivity &
Corridors
4 potential Wildlife
corridors are
threatened by
increasing
encroachment and
poaching
4 Wildlife corridors
occur in game
controlled areas where
human activities are
less controlled.
Formulation of Buffer zone Regulation will provide
legal protection of remaining wildlife corridors
Appropriate Land use plan to all villages adjacent
to wildlife corridors will improve the maintenance
of these corridors.
Integration into
wider land and
seascapes
1 National Park has
been designated
extending from
terrestrial to marine
to provide protection
of both ecosystems.
Most PAs were
created with key focus
on wildlife fisheries
and forest related
biodiversity
conservation element.
New categories of PAs integrating wider land and
seascapes will provide more opportunities and
connectivity to the PAs.
Other effective
area based
conservation
National Ant-
poaching Strategy
and awareness
Inadequate fund for
the effective
implementation of the
Fund generated through wildlife related tourism
can support conservation plans
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measures programmes have
developed address
environmental
challenges
strategies.
Threatened
species
assessment
14 wildlife species
have been identified
as threatened
species, 5 species
timber have also
listed and about 9
marine species too
have list as
threatened species
making them to be
registered in CITES.
CITES control illegal
trade not other forms
of threat such as
habitat fragmentation.
National Strategy coped with regional and
International collaborative initiatives can be useful
in eliminating bad practices towards conservation
off threatened species.
Conservation
plans status
National Strategy
to Combat
Poaching and
Illegal Trade of
Wildlife Species.
The strategy focuses on
6 major ecosystems of
PAs holding larger
population of priority
target.
Registering all areas with potential in biodiversity
will extend conservation to PAs.
Page 135
30. United Republic of Tanzania PRIORITY ACTIONS
1) Create new marine protected areas in biodiversity hotspots and fragile ecosystems; 2) Expansion of Wildlife Management Areas (WMAs) and Forest Nature Reserve to improve wildlife
corridors connecting PAs; 3) Promote new protected areas integrating wider land and seascape; 4) Review policies, plans and strategies aimed at managing terrestrial and marine protected areas; 5) Strengthen measures to limit illegal exploitation of resources in terrestrial and marine protected
areas; 6) Promote Regional Cooperation on protection and conservation of trans-boundary terrestrial and
marine protected areas; 7) Promote ecosystem approach in marine protected areas; 8) Enhance institutional, research and human capacity on the management of terrestrial and
marine protected areas