Mid-term internal review of Bazaruto Multiple Resource Use Project, 2001-2005 and Bazaruto Community Based Natural Resource Management Project, 2003-2005

Background

The report presents the findings of an internal progress review of two complementary projects being implemented within the Bazaruto Archipelago National Park (BANP) in Mozambique: the Multiple Resource Use Project (MRUP) 2001-2005 funded by WWF-Switzerland, and the Community Based Natural Resource Management (CBNRM) project 2003-2007 (funding secured for 2003-2005 from WWF-Norway/Norad). The MRUP supports park administration and management as well implementation of the Park Management Plan, whereas the CBNRM project focuses on improvement of social well-being in the BANP through active participation of community-based organisations in the protection, management and sustainable use natural resources together with the management authority (DNAC) and private sector partners. Implementation of activities related to both projects is carried out by means of a tripartite partnership between the Park Administration, WWF and FNP (a local NGO).

A main issue for the review was that over the last two years the BANP has experienced considerable development pressures from the private sector. A number of inappropriate infrastructure developments have been planned or implemented, and the management plan has not been adhered to. There are concerns that such developments might have negative impacts on conservation goals. This has contributed to strained relationships between key stakeholders including Government agencies, including the BANP administration, WWF, FNP, private sector and community participants.

Purpose/objective

The review aimed to focus on the following aspects of the two projects:
• Measure the performance of the two projects to date with respect to stated goals and objectives by identifying specific accomplishments and/or failures attributable to them.
• Review the activities that have taken place and the resulting outputs to date, and determine the quality and impact of these.
• Review the project implementation strategy with particular reference to the relationship between the Park Administration, DNAC, FNP and WWF in both Bazaruto and Maputo.
• Review the biological, sociological, legal and administrative indicators for the Projects, as reflected in the Project log frames.
• Outline the lessons learned from experience to date and provide recommendations that can be used in the continuation or reorientation of the project.
• Identify efforts by other agencies contributing to implementation of sound natural resource management and community capacity building in the BANP (i.e. cross-cutting initiatives, political issues, conservation incentives, bilateral assistance, and the role of other NGOs).

Methodology

The evaluation was carried out by a team of one independent reviewer and four WWF staff members. The role of the independent consultant was to provide external, objective insight during the assessment and produce the review report. The review was carried out in two parts: 1) separate discussions by the independent reviewer with key stakeholders, and 2) joint assessments by the review team of the two projects in the form of logframe based discussions. In addition two workshops were held: one with local stakeholders and one with invited Government participants.

Key findings

Collectively, the two projects have made an essential contribution to the continued conservation of the biological resources of the BANP. The CBNRM project support has also resulted in significant improvements to the socio-economic conditions of communities living within the BANP. Of particular importance is the fact that the project has been at the forefront of developing novel approaches to CBNRM within Mozambique. Key innovations include the establishment of community associations, the development of systems for the transfer of revenues from tourists to communities, and the recent adaptation and introduction of the Management Oriented Monitoring System (MOMS).

Despite these significant conservation successes, the review also identified a number of key concerns. One of these is the apparent continued decline in marine resources such as coral reefs, fish and mapalo (sand oysters), on which local livelihoods are directly dependent. The key challenge here is to develop alternative livelihood options, including increasing the benefits from tourism to communities both through direct employment and an increased transfer of revenues, as the CBNRM project is actively seeking to do.

Potentially unsustainable tourism development is another key threat to the resource base of the BANP. Compliance with the management plan is key in this respect as is to ensure that the forthcoming revision of the plan is done in a sound manner. The new management plan must deliver a suitable mechanism to control future developments, such that these are limited to the capacity of the system to support such activities on a sustainable basis.

Recommendations

Review results indicate that although both projects have made considerable progress, there are still many activities that need further follow up and development, and that to do so will require further donor support. In seeking further support it should be emphasized that the BANP remains in the forefront of developing new approaches to CBNRM in Mozambique. This is necessarily more complicated and resource demanding than the application of a pre-existing model.

At the same time WWF-Switzerland and WWF-Norway have made it clear that in order for them to continue their support they will require an unambiguous commitment from central Government to adhere to and uphold the national park management plan. Specifically they are requesting Government not to authorize any new development activities until such time as the new management plan is in place. So far this has not been forthcoming. It appears that Government is specifically seeking to delay giving any such commitment until such time as the management plan has been revised (and which they are aiming to do as quickly as possible).

Given that this issue may still compromise future support by WWF-Switzerland and WWF-Norway, it is imperative that strong effort should be put into lobbying central Government to give the necessary assurances that the donors are seeking, and to carry out revision of the management plan in a comprehensive and responsible manner.

Comments from the organisation

In addressing the main issue of uncontrolled tourism development and lobbying central Government in Mozambique in this respect many efforts have been made over the last two years by WWF SARPO, WWF MCO, WWF-International and the local NGO partner FNP. High-level meetings have taken place between WWF and the Permanent Secretary of Ministry of Tourism, the Ministers of both Tourism (who have authority over National Parks) and Environmental Coordination, as well as the CEO's of the major hotel developers in BANP.

In the last meeting between the Conservation Director of WWF-International and the Minister of Tourism in September 2005 agreement was reached on two WWF key requirements (to be confirmed in writing):
a) Thorough study and update of the management plan - lasting one year and calculating the carrying capacity of the islands for tourism.
b) No further developments would take place until the management plan was updated, and the plan would set the framework for the future.
Furthermore, the main tourism developers have informally agreed to support the management planning process and to abide by the conclusions. Finally, a high-level forum will be facilitated by WWF in October 2005 which the Minister of Tourism will attend, along with the tourism developers and other stakeholders from business and politics. The outcome of this meeting and commitments made by the stakeholders will be a decisive factor for future WWF-Norway support and intervention in the BANP.