Prospects for co-management in Nsumbu National Park, ZambiaProspects for co-management in Nsumbu National Park, ZambiaMatthew Fossey, Department of Geography, Lancaster UniversityMatthew Fossey, Department of Geography, Lancaster University

Background

Natural resource management (NRM) is an important and influential issue throughout the world. In the past, many traditional societies had systems regulating natural resource use. As a general rule, traditional NRM systems have been severely weakened, particularly under colonial governments. Efforts to manage natural resources have continued over time, and the dominant approach put forward for most of the twentieth century, in both the North and the South, was the exclusion of people from natural places by governments, through the creation of conservation measures like protected areas (PAs) (Adams 2001). This ‘fences-and-fines’ approach is now perceived by many to have largely failed. Although natural resources in many developing countries are still being managed using top-down strategies, the approach has been progressively challenged by another which considers the inclusion of local communities as essential for successful NRM.

What is co-management?

There is no widely accepted definition of co-management. The term broadly refers to the sharing of power, responsibilities and benefits between the government and local resource users for a given territory or set of natural resources (Berkes et al. 1991). In reality, there is a continuum of co-management arrangements, between the extremes of full control by government and full control by other stakeholders (see Figure 1).

Full control by the Full control by communitiesagency in charge & other stakeholders

COLLABORATIVE MANAGEMENT

….ignoring & ….actively ….seeking ….negotiating ….sharing authority ….devolving authority repressing consulting consensus agreements & responsibility & responsibility

Figure 1 – A continuum of governance options for NRM (Adapted from Borrini-Feyerabend 1996)Figure 1 – A continuum of governance options for NRM (Adapted from Borrini-Feyerabend 1996)

Borrini-Feyerabend (1996), states three main phases in a co-management process can be identified: 1. preparing for the partnership (organising); 2. negotiating co-management plans and agreements; and 3. implementing and reviewing the agreement (‘learning by doing’).

Why co-manage?

According to Carlson and Berkes (2005), the immediate answer is simple: “co-management is a logical approach to solving resource management problems by partnership”. Although the various stakeholders involved may hold different interests, the fundamental assumption is that partnerships will enhance the process of NRM, making it more responsive to a range of needs. With regards to PAs, co-management is not a panacea, yet for Borrini-Feyerabend (1996), at least a mild version of collaborative management – i.e., the consultation and the seeking of consensus of stakeholders in PA management – is essential in all cases.

Relevance of the study

Zambia’s relatively small population, which is to a large extent urban, has made an extensive system of protected areas possible. There are 19 national parks, and a further 31 game management areas (GMAs), putting more than a third of the country under some type of PA management. Zambia’s PAs are administered by the semiautonomous Zambia Wildlife Authority (ZAWA), a body which has previously attempted to remove people as residents of PAs, and prevent other forms of human impact.

Nsumbu National Park (NNP) covers an area of 2020km2 and is located on the shores of Lake Tanganyika in the north of the country (see Figure 2). Like many other parks in Zambia, Nsumbu was virtually abandoned in the 1980s, and suffered badly from poaching. Although more resources for management are now available, initial assessment of the perceptions of resident communities (Figure 3) reveal the park is generally seen in a negative light. Local people claim they derive very few, if any, benefits from the park itself and ZAWA is viewed by many to adopt a very heavy-handed approach to PA management. Later this year, a workshop will be held to discuss issues relating to the management of NNP and the surrounding GMA. Following this, a management plan for the area will be written by ZAWA.

Figure 2 – Map of Zambia showing location of Nsumbu National ParkFigure 2 – Map of Zambia showing location of Nsumbu National Park

Study design As noted above, three co-management phases can be identified. This study can

essentially be viewed as part of the first, or preparatory phase.

Aim:

To analyse the prospects for co-management as an approach in NNP.

Objectives:

1. To identify the main stakeholders involved, along with their rights, responsibilities, needs and interests, and analyse the extent to which these are reflected in management.

2. To determine the current management situation and identify problems with the existing system.

3. To assess whether a co-management process is an option, and if so assess whether such a process is feasible.

4. From these results, to devise recommendations for future management and explore the feasibility of implementing such ideas.

Methods:

Data will be collected through a variety of techniques. Semi-structured interviews and focus groups, supported by questionnaires will be used within resident communities. Direct observation and other participatory exercises may be used to clarify initial findings at the local level. Interviews will also be employed in identifying interests, problems and priorities of other stakeholder groups. A review of secondary sources will also be carried out to gain an understanding of the current management situation.

Potential problems:

• Lack of cooperation by ZAWA or individuals unwilling to share authority with other stakeholders.

• Lack of cooperation by local residents or other stakeholders who see the existence of the park as depriving them of income and development.

• Logistical issues associated with working in a remote location (e.g. health, travel).

Figure 3 – Nsumbu township, one of the communities surrounding the national parkFigure 3 – Nsumbu township, one of the communities surrounding the national park

References

Adams, W. M. (2001) Green Development: Environment and sustainability in the Third World. Routledge, London.Berkes, F., George, P. and Preston, R. J. (1991) Co-management: the evolution in theory and practice of the joint administration of living resources. Alternatives 12, 12-18.Borrini-Feyerabend, G. (1996) Collaborative management of Protected Areas: Tailoring the Approach to the Context. IUCN, Switzerland.Carlsson, L. and Berkes, F. (2005) Co-management: concepts and methodological implications. Journal of Environmental Management 75, 65-76.