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The Governance of Nature

and the Nature of Governance:Policy that works for biodiversity and livelihoods

Krystyna Swiderska

with

Dilys Roe

Linda Siegele

Maryanne Grieg-Gran

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The Governance o Nature and the Nature o Governance:Policy that works or biodiversity and livelihoods

Krystyna Swiderska, with Dilys Roe, Linda Siegele, Maryanne Grieg-Gran

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Acknowledgeents

The authors are grateul to SwedBio (the Swedish International Biodiversity Program unded by Sida) and theUNDP/Equator Initiative or their nancial support. A big thank-you to Sonja Vermeulen (IIED) and Maria Berlekom(SwedBio) or their useul comments on the drat. A special thanks also to our country partners who helpedorganise, conduct and write up the country case studies, in particular:

Tanzania: Faustin Maganga (Institute o Resource Assessment, IRA), Tom Blomley and David Howlett

India: Neema Pathak, Madhu Sarin, Tejaswini Apte, Kanchi Kohli, Ashish Kothari and Seema Bhatt

Peru: Micha Torres, Alejandro Argumedo and Inti Montenegro (ANDES) and Maria Luisa del Rio (CONAM)

Thanks also to Michel Pimbert (IIED) or his guidance, Joy Hyvarinen (FIELD) or comments on the drat, and toJames Mayers and Steve Bass or their advice in the early stages. Finally, we would also like to thank Fiona Hall orediting the drat, Richard Scarborough and Piers Aitman or design and layout, Catherine Baker and AlessandraGiuliani or their help with compiling reerences, and Vanessa Mcleod-Kourie and Khanh Tran-Thanh or helpingcoordinate the production process.

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Acronys and abbreviations

ABS Access and benet sharing

BMC Biodiversity Management Committees (India)

CBD Convention on Biological Diversity

CBNRM Community-based natural resource management

CBO Community-based organisation

CCA Community conserved areas

CGIAR Consultative Group on International AgriculturalResearch

CITES Convention on International Trade in Endangered

Species o Fauna and FloraCONAM The National Commission or Environment (Peru)

COP Conerence o Parties (to the CBD)

CTE World Trade Organisations Committee on Tradeand Environment

CWM Community wildlie management

DBS Direct budget support

DDS Deccan Development Society

DFID UK Department or International Development

EIA Environmental impact assessment

FDI Foreign direct investment

FAO Food and Agriculture Organisation o the United

NationsFRA The Scheduled Tribes and Other Traditional Forest

Dwellers (Recognition o Forest Rights) Act, 2006(India)

FTA Free trade agreement

GEF Global Environment Facility

GMO Genetically modied organism

HYVs High yielding varieties

IGC Inter-Governmental Committee on GeneticResources, Traditional Knowledge and Folklore

IGO Inter-governmental organisation

IIFB International Indigenous Forum on Biodiversity

ILO International Labour OrganisationIMF International Monetary Fund

INRENA The National Institute or Natural Resources (Peru)

IPRs Intellectual property rights

IUCN International Union or Conservation o Nature

JFM Joint orest management

MA Millennium Ecosystem Assessment

MDG Millennium Development Goals

MEA Multilateral environmental agreements

MKUKUTA National Strategy or Growth and Reduction oPoverty (Tanzania)

NBA National Biodiversity Authority (India)

NBSAP National biodiversity strategy and action plan

Norad Norwegian Agency or Development Cooperation

NR Natural resources

NTFP Non-timber orest product

OECD Organisation or Economic Co-operation andDevelopment

PA Protected area

PBR Peoples biodiversity register

PDS Public Distribution System (India)PESA Panchayats (Extension to Scheduled Areas) Act,

1996(India)

PFM Participatory orest management

PIC Prior inormed consent

PoWPA Programme o Work on Protected Areas (CBD)

PRSP Poverty reduction strategy paper

PTPA US-Peru Trade Promotion Agreement

RH Resident hunting (Tanzania)

SBB State Biodiversity Boards (India)

SEZ Special economic zone (India)

SPS Sanitary and phytosanitary measures

TANAPA Tanzania National Parks Authority

TK Traditional knowledge

TRIPS Trade-related aspects o intellectual propertyrights

UNDP United Nations Development Programme

UNEP United Nations Environment Programme

UNFCCC UN Framework Convention on Climate Change

UNPFII UN Permanent Forum on Indigenous Issues

UPOV International Union or the Protection o NewVarieties o Plants Convention

USD United States dollars

WIPO World Intellectual Property OrganisationWLPA Wildlie Protection Act (India)

WSSD World Summit on Sustainable Development

WTO World Trade Organisation

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Contents

Acknowledgements iiAcronyms and abbreviations iii

Eecutive Suary vii

Capter 1. Introduction 1

1.1. Governance, biodiversity and livelihoods 11.2. Objectives and ocus 1

PART 1: BIODIVERSITY GOVERNANCE ISSUES: A GLOBAL REVIEW 5

Capter 2. Biodiversity 72.1. Key terms 72.2. Biodiversity loss 92.3. The many values o biodiversity 112.4. Integrating local values into biodiversity assessments 15

Capter 3. Good governance 18

3.1. What is governance and why is it ailing biodiversity and livelihoods? 183.2. What kind o governance do we need? 213.3. Promoting good governance in biodiversity conservation 25

Capter 4. Governance at te local level: counity-based conservation 32

4.1. Has community-based conservation worked? 334.2. Institutional constraints to community-based conservation 34

4.4. Strengthening local institutions, rights and participation 364.5. Scaling-up community conservation 38

Capter 5. Governance at te national level: ainstreaing biodiversity 41

5.1. Mainstreaming biodiversity and economic valuation 415.2. Improving the planning process or national biodiversity strategies and action plans 45

Capter 6. Governance at te international level 48

6.1. The Convention on Biological Diversity 486.2. Gaps in the biodiversity discourse: sustainable use and human rights 526.3. Access to and benets rom genetic resources 566.4. Coherence between the biodiversity and trade agendas 58

PART 2: COUNTRY CASE STUDIES 63Introduction 64

Capter 7. India 65

7.1. Wildlie conservation policy 657.2. Biodiversity legislation in India 677.3. Wildlie versus people lobbies 687.4. National biodiversity strategy and action plan 707.5. Towards rights or pastoralists, tribal peoples and orest communities 727.6. Mainstreaming biodiversity in development policy and planning 757.7. Integrating biodiversity into agriculture and rural development policy 817.8. Integrating biodiversity into state and district planning 847.9. The role o donors 847.10. Getting biodiversity onto the political agenda 85

7.11. Policymaking and implementation processes 857.12. Strategies or infuencing policy 877.13. Suggestions or action-research 88

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Capter 8. Tanzania 90

8.1. Wildlie conservation and national parks 908.2. Restrictions on wildlie hunting 928.3. Community wildlie management and WMAs 928.4. Participatory orest management and its impacts 938.5. Mainstreaming the environment: the MKUKUTA 1008.6. Tanzanias NBSAP and mainstreaming biodiversity 1048.7. Infuencing policymaking and implementation processes 1058.8. Suggestions or action-research 108

Capter 9. Peru 111

9.1. Protected area co-management 111

9.2. Mainstreaming biodiversity in development policies 1129.3. Policymaking and implementation processes 1249.4. Conclusions and recommendations 1259.5. Suggestions or uture action-research 125

PART 3: CONCLUSIONS AND WAYS FORWARD 127

Capter 10. Conclusions 128

10.1. Improving policymaking processes 12910.2. Recognising and enorcing local rights 13110.3. Strengthening governance at the local level 13310.4. Improving policy coherence and mainstreaming biodiversity across all sectors 135

Capter 11. Ways orward 137

11.1. Community empowerment approaches 13711.2. Approaches or improving policies and institutions 14011.3. Going urther 143

Anne: List o People Interviewed 144

REFERENCES 146

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ExECUTIVE SUmmARYBiodiversity and ecosystem services are being degraded aster than at any other time in human history. Most othe worlds biodiversity is ound in Southern countries where people greatly depend on natural resources butsuer rom high levels o rural poverty and oten weak governance. Weak governance (eg. political marginalisationand corruption) is a key underlying driver o both biodiversity loss and poverty. At the same time, the role obiodiversity in the provision o ecosystem services that underpin national economies and rural livelihoods is largelyoverlooked. As the Millennium Ecosystem Assessment ound, reversing ecosystem degradation while meeting thegrowing demand or ecosystem services will require signicant changes in policies, institutions, and practices.

The 190 Parties to the Convention on Biological Diversity (CBD) ar