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BRIEF HISTORICAL REVIEW
2.1 Protected areas and wildlife administration
2.2 Professional hunting safaris
2.4 Wildlife producers
CURRENT SITUATION
Zambia Wildlife Authority
Wildlife
Community
Trade and sustainable use
Political leadership
Donors
Civil Society
Regional and global support
THE WAY FORWARD
Zambia Wildlife Authority
Investment opportunities
Game industry
National Parks funding and support
Community natural resource management projects
Transfrontier Conservation Areas
5 KEY RECOMMENDATIONS
6 ACRONYMS
The year 2001 has seen a marked deterioration in the management of the Zambian wildlife estate. All professional hunting activities were closed following a report on the industry by a firm of consultants. The delay in the appointment of a Board of Directors and a Director-General, and the unwillingness of donors to provide funding in the absence of these appointments, have also contributed to a situation of falling income. Foreign exchange earnings, tax income, employment and associated benefits for the rural poor have all been adversely affected, as has basic law enforcement.
The recent strike by ZAWA staff on 11 October citing the non receipt of pay for three months is the result of finance shortfalls from government in the absence of income from hunting. This strike has spread to the GMAs and national parks where there is reported to be greatly increased abuse of the resource, and actual interference with normal tourism functions. The opinion in some quarters is that donors wish to appoint a European as Director General in order that an impartial position is presented in the Zambian body politic. Both donors and senior government leaders deny this.
At the same time as such negative events are unfolding, the President of the Republic has joined Presidents Obesanjo and Mbeki in promoting the New Africa Initiative for Africa, an initiative which is being seriously undermined by recent developments in ZAWA, posing a potential embarrassment to the President and the nation. It is understood that approval by Parliament within the next two weeks of qualified candidates, free of the taint of corruption, would immediately unlock all the donor funding to enable ZAWA to continue with its core business. The appointments should immediately open the hunting concessions for business, as well as allowing other crucial investment initiatives to go ahead that are on hold.
1 INTRODUCTION
To this end two former senior employees of the Department of National Parks and Wildlife combined their efforts and visited Zambia in order to lend their support in the search for a solution to the impasse, namely:
Dr John Hanks, former senior biologist, Kafue National Park in the 1960s and elephant researcher in Luangwa in the 1970s, now Director: Transfrontier Conservation Initiatives in Southern Africa, Conservation International;
Ian Manning, former Senior Cropping Ranger, Luangwa Command 1966/67, Warden and biologist Bangweulu Command 1973/76, Project Manager, NPWS/WWF Black Rhino project in 1984 (headed by Dr Hanks of WWF), and recently the Chief Technical Adviser to the Department of Environmental Affairs & Tourism, South Africa for CITES Implementation.
In addition to advising on the present problem, Dr Hanks presented the proposal for the Okavanga/ Upper Zambezi Transfrontier Conservation Area (TFCA), while Ian Manning dealt with issues of support to ZAWA for CITES, particularly the preparation required for the forthcoming CITES Conference of the Parties in Santiago in November 2002.
Considerable assistance for the visit to Zambia was received from the government, conservation, business and aid agency sectors, particularly Mr David Gleason (formerly of Anglo American, Zambia), Mr BC Chileshe (Vice-President of Konkola Copper Mines), Mr Tadg Wixted (Chairman of the Kasanka Trust), Ms Patricia Mupeta (Wildlife Conservation Society, Lusaka Office), Mr Richard Jeffery (Environmental Consultant and consultant to the World Bank), Ms Mehrnaz Teymourian (Senior Technical Specialist, Lusaka Office, The World Bank), Mr Magne Grova (NORAD) and The Rt. Hon. Enoch Kavindele M.P., Vice-President of the Republic of Zambia.
2 BRIEF HISTORICAL REVIEW
2.1 Protected areas and wildlife administration
Zambia’s first protected area, Mweru Game Reserve, was established in 1898. This was followed by other conservation measures in the first two decades of the 19th Century, which sought principally to regulate hunting. In the 1930s additional game reserves were recommended in the Luangwa Valley and in the S.E. Bangweulu. After the Second World War the Game Department was formed. By the time of Independence on October 1964 a wide array of protected areas were in operation, with a well-established and proficient wildlife administration. In recent times the decision was made to create a parastatal, the Zambia Wildlife Authority to replace a department that was administered under normal civil service procedures.
2.2 Professional Hunting Safaris
The first professional hunting safaris were conducted from about 1901, declining in the 1940s, resurrected and run by the Game Department in the Luangwa Valley in the 1950s, and then undergoing a massive resurgence in the 1960s through the allocation of concessions to safari outfitters. The trend over the last twenty years has been for safari concessions to be held by business people who then sub-contract out to professional operators – a break from tradition.
The powers of the traditional authority in respect of wildlife utilization were circumscribed by the administration of the British South Africa Company, by the Colonial Administration and by the post Colonial Administration. However, in the 1940s rights to earnings from wildlife were given to the traditional authority in the newly acclaimed reserve established by Chief Nsefu, the Nsefu Game Reserve – perhaps the first of its kind in Africa. This was followed much later by such schemes as the Luangwa Integrated Rural Development Project and the Administrative Management Design for Game Management Areas (ADMADE), which still seek to direct the benefits of the sustained use of wildlife to people.
2.4 Wildlife producers
The Zambian game ranching industry has grown considerably since it began in the early 1980s, attracting significant investment and creating a thriving game capture and translocation business, game sales and additional non-consumptive and consumptive tourism.
THE CURRENT SITUATION
Zambia Wildlife Authority
On 11 October 2001, employees of ZAWA at Chilanga informed the Director of Conservation and Management, Dr Lewis Saiwana, that they were going on an indefinite strike due to the non-payment of their salaries for three months. It was also made clear that the strike movement was spreading throughout the country, with reports of ZAWA officials blockading an airstrip used by tourists, issuing illegal licenses and so on.
Senior ZAWA management blame the situation on the following:
The damaging impact on the morale of serving officers and on the public in general.
The likely escalation of wildlife poaching and other attacks on the integrity of the national parks system.
The damage such a strike would cause Zambia’s international standing.
The urgent need to reinstate a hunting industry before the end of the year in order to enable the necessary marketing to take place, so that funds may be released for ZAWA administration and operations, rural employment bolstered, and anti-poaching assistance and community based projects resumed.
The urgent need for scientific technical and financial support to place the hunting industry on a sound scientific footing, and to prepare Zambia’s position for the forthcoming Conference of the Parties of CITES at Santiago in November 2002.
At present the reconstructed Board of ZAWA has as its Chairman the Permanent Secretary of the Tourism Ministry. This may present a further hindrance in the perception of the public, who consider that this does not to promote a sense of independence from Government in the Board’s deliberations.
Wildlife
It is clear from the recent aerial survey of the Kafue National Park, initiated by Conservation International in cooperation with ZAWA as part of the Okavango/Upper Zambezi TFCA, that the park’s integrity is being seriously violated with numerous poaching camps, village invasions and tree-cutting being recorded. Large mammals were sampled and it seems clear that elephant numbers are appreciably down on previous counts. The full report will be available early in November.
Reports received from numerous reliable quarters reveal a break down in law enforcement in the Kafue National Park. The situation is also rapidly deteriorating in the Zambezi Valley, from where there is a report of eight elephant recently being shot by poachers. At Chikuni, Bangweulu, there are recent reports of officers being assaulted and greatly increased poaching of black lechwe where they are concentrated in the flood plains.
3.3 The Community
While the Zambian legislation is one of the finest in Africa, with the rights of communities well represented in national policy, it seems clear that rural, traditional communities, particularly those in and around protected areas, have not been placed to the forefront of measures to benefit from wildlife and so alleviate their deep poverty and almost total lack of employment opportunities. Even where bilateral aid agreements have stipulated that income from consumptive and non-consumptive tourism flow unhindered to communities, these agreements have at times not been respected, a situation doubtless due in part to the severe reduction on money available to run government administration.
Trade and Sustainable Use
The closure of hunting has had an extremely adverse effect on the game production industry, greatly adding to unemployment and financial hardship. It is also likely to have detracted from investment interest (confirmed by the Zambian Investment Centre) at a time when Government is trying to attract investors. The interests of potential international investors in wildlife in SADC countries is highest in Tanzania and Zambia, with the latter being far in advance as to its flexibility in obtaining land for development and its burgeoning game producers industry. However, recent developments do not encourage this much-needed investment support.
Political leadership
It is as yet unclear as to the reasons for the closure of hunting, though corruption and criminal activity within the industry may have precipitated the President of the Republic to take action. The review and recommendations of consultants (Deloitte and Touche), hired to review the hunting industry, have yet to be acted upon. With regard to ZAWA and the delay in appointing its officers, (which in turn has adversely effected ZAWA’s operations which the donors stand ready to support), it is unclear why there is a delay.
3.6 Donors
The main donors involved with any future support for ZAWA are The World Bank, DANIDA, NORAD and the EU. This group is insistent on the following conditions for the release of funds:
That the selection of the Director-General and other Directors is wholly transparent and that only qualified candidates are chosen, irrespective of their ethnicity, nationality (in the case of the DG?) or religion.
That they should not be under suspicion of corruption or any past illegal or criminal or unethical action
It is clear that the donors have lost confidence in the system and do reserve the right – as the Netherlands did in January/February – to withdraw from the wildlife aid arena should ZAWA not be properly established and run.
Civil Society
Zambia has a wildlife consultative forum that meets occasionally to deal with current issues affecting wildlife. However, this is not a fully active national organization representing the wildlife industry, rural communities, NGOs and individuals with an investment or interest in the conservation of wildlife and the maintenance of the integrity of protected areas, as it has not met to deal with what is clearly an emergency. The lack of a national body incorporated within Zambia does not allow for a firm lobbying presence in Parliament, for the mobilization of a system of support and assistance to Government both nationally and internationally, and for the channeling of efforts needed to take Zambia forward as a member of a rapidly advancing SADC community of nations which has embraced the New Africa Initiative.
Regional and global support
The most exciting recent event, one of considerable significance for Zambia, for the SADC community and for Africa as a whole, is the New Africa Initiative recently adopted by the newly constituted African Union. The initiative, a fusion of the Millennium Partnership for the African Recovery Programme (MAP) and the West African OMEGA Plan (President Wade of Senegal), seeks to attract the developed world’s support and investment in exchange for its rapid moves towards democracy and the fight against corruption – to which may be now added, terrorism and anti-democratic values. The Environment Initiative reads as follows:
“It has been recognised that a healthy and productive environment is a prerequisite for the African initiative. It is further recognised that the range of issues necessary to nurture this environmental base is vast and complex, and that a systematic combination of initiatives is necessary in order to develop a coherent environmental programme. This will necessitate that choices be made, and particular issues be prioritised for initial interventions.
It is also recognised that a core objective of the Environment Initiative must be to combat poverty and contribute to socio-economic development in Africa. It has been shown that many of the steps taken to achieve a healthy environmental base can contribute greatly to employment, empowerment, social cohesion, dignity and the reduction of poverty.
It should be mentioned, too, that Africa is to host the World Summit on Sustainable Development in September 2002. Environmental management forms the basis of the range of issues to be debated at the Summit, and we submit that the event gives particular focus and status to the deliberations on this theme in the African initiative.
The Environment Initiative has targeted eight subthemes for priority interventions:
Combating Desertification. Role model interventions are envisaged to rehabilitate degraded land and to address the factors that led to such degradation. Many of these steps will need to be labour intensive, along the lines of "public works programmes", thereby contributing to the social development needs of the continent.
Wetland Conservation. This involves a rolling out of African role model interventions on wetland conservation, where social and ecological benefits give very good returns on investment.
Invasive Alien Species. Partnerships are also sought to prevent and control invasive alien species. These partnerships are critical for both the integrity of natural systems and economic well-being. Major labour-intensive initiatives are possible.
Coastal Management. In protecting and utilising coastal resources to optimal effect, role models are again suggested from which a broader programme can be introduced.
Global Warming. The initial focus is on monitoring and regulating the impact of climate change. Labour-intensive work is essential and critical to integrated fire management projects.
Transfrontier Conservation Areas. This subtheme seeks to build on the emerging initiatives to seek partnerships across countries that boost conservation and tourism, and therefore create or protect jobs.
Environmental Governance. This relates to the securing of the institutional, legal, planning, training and capacity-building requirements that underpin all of the above.
Financing. A carefully structured and fair system for financing work is needed.
The Environment Initiative has a distinct advantage in that many of the initiatives can start within relatively short time frames, and they also offer exceptional good returns on investment in terms of creating the social and ecological base upon which the African initiative can prosper.
Tourism
Objectives
To identify key "anchor" projects at the national and subregional levels, which will generate significant spin-offs and assist in interregional economic integration;
To develop a regional marketing strategy;
To create a research capacity in tourism;
To extend partnerships such as those formed via subregional bodies, such as the Regional Tourism Organisation of Southern Africa (RETOSA), the Economic Community of West African States (ECOWAS) and the SADC.
Actions
On the African level:
Forge cooperative partnerships so as to capture the benefits of shared knowledge, as well as provide a base for other countries for entering into tourist-related activities;
Provide the African people with the capacity to be actively involved in sustainable tourism projects at the community level;
Prioritise consumer safety and security issues;
Market African tourism products, especially in adventure tourism, ecotourism and cultural tourism;
Increase regional coordination of tourism initiatives in Africa for the expansion and increased diversity of products;
Maximise our benefits from the strong interregional demand for tourism activities, by developing specialised consumer-targeted marketing campaigns.”
The NAI is presently being revised to incorporate positions on biodiversity conservation, tourism development, land tenure, incentives for investment and other essential items. This will be presented at the forthcoming World Summit on Sustainable Development (in Johannesburg from 2-11 September 2002), which is expected will be attended by 112 Heads of State and 50,000 delegates from around the world. There is no more single crucial event for the delivery of meaningful development to address poverty alleviation, food security, the state of the environment and biological diversity.
To support a future in which SADC will go forward as a region in a meaningful manner so as to attract the full support of the developed world, it will also be necessary for the SADC Protocol on Wildlife Conservation a protocol signed by all Heads of State - to be taken up seriously. We are witnessing the convergence of a number of events and opportunities to advance the region as an important part of the global community.
THE WAY FORWARD
Zambia Wildlife Authority
Investment opportunities
The proper establishment of ZAWA will attract investment. ZAWA should however be encouraged to support the proposed establishment of the Okavango/Zambezi TFCA. Within it, investments are required in community projects based on wildlife rights and
obligations, the national parks (Kafue, Mosi, Sioma) and the forest management areas. In addition, investments are also needed in the national parks system of Zambia as a whole, where there will always be major shortages of funds, technical capacity and true dedication, and in hunting concessions where concessionaires operate unguided by management plans.
The game industry
The industry requires an assessment of the incentives and disincentives in place. These should form part of a national body’s lobbying position in assisting government in increasing investment opportunities in wildlife conservation and tourism.
National Parks funding and support
Zambia needs to replicate the success of the Kasanka Trust’s fruitful partnership with Government in the joint management of the Kasanka National Park. Using the current agreement with Government, guidelines should be laid out for attracting NGOs and business to become similarly involved with other national parks, many of which are designated but almost totally neglected. When CBRM projects with communities in the buffer zone are added, the result could transform biodiversity management in Zambia.
Community natural resource management projects
Zambia has built up a deserved reputation as a leader in this field, but is not giving adequate attention to the creation of investment and development opportunities for rural communities where tourism ventures operate. Hunting concessionaires are not obliged to follow a management plan which incorporates appropriate CBRM assistance and partnerships. The opportunity to provide further models for incorporating private enterprise, CBRM and donor, NGO and government inputs should be developed by the proposed Okavango/Upper Zambezi TFCA.
Transfrontier Conservation Areas
The proposed Okavango/Upper Zambezi TFCA presents a major opportunity for Zambia and for the region as a whole to develop an unparalleled tourism and investment circuit incorporating national parks, games reserves, forest reserves, game management areas, private land and communal land. Other potential TFCAs include the proposed DRC Pedicle/Bangweulu/Luangwa TFCA.
5 KEY RECOMMENDATIONS
The immediate formation of a Zambian biodiversity alliance - representing the biodiversity community, the wildlife and tourism industry, traditional communities, NGOs, researchers and other interested parties – dedicated to facilitating the following:
The immediate establishment of a competent ZAWA.
The provision of suitable management structures and monitoring.
The facilitation of aid flows and feedback to donors.
The provision of emergency funding to pay salary arrears.
The provision of equipment and suitable transport.
The immediate re-instatement of the hunting industry based on a set of responsibilities and obligations in return for security of tenure.
Immediate scientific support in the provision of offtake quotas.
The facilitation and monitoring of returns to traditional communities and local authorities from sustained use of biodiversity.
The encouragement of protected areas support groups through dedicated NGOs.
6 ACRONYMS
ADMADE Administrative Management Design for Game Management Areas
AU African Union
CBRM Community based natural resource management
DG Director-General
MAP Millennium Partnership for the African Recovery Programme
NAI New Africa Initiative
OMEGA The Omega Plan
TFCA Transfrontier Conservation Area
ZAWA Zambia Wildlife Authority