“Training and Capacity Building Needs Assessment”
for the KILORWEMP project
Final Report
July 2014
by
eMJee Consult Tanzania Ltd.
Table of Content
Abbreviations ................................................................................................. iv
Acknowledgements ....................................................................................... vii
Executive Summary ...................................................................................... viii
1. Introduction ................................................................................................ 1
1.1. The Projects: .......................................................................................... 1
1.2. Objectives of the current assignment ......................................................... 2
1.3. Concepts ................................................................................................ 2
1.4. Methodology ........................................................................................... 4
1.5. Tools: .................................................................................................... 6
2. Context Analysis.......................................................................................... 8
2.1. History of CBNRM...................................................................................... 8
2.2. Policy and Legal environment ..................................................................... 8
2.3. Stakeholders .......................................................................................... 10
2.4. CBNRM status......................................................................................... 16
3. Result areas: ............................................................................................. 17
3.1. Result area 1: User rights obtained ........................................................... 17
3.2. Result area 2: ........................................................................................ 22
3.3. Result area 3: ........................................................................................ 27
3.4. Focus of capacity building interventions in response to identified performance
gaps ............................................................................................................ 31
4. Institutional level: MNRT and Regional Secretariat ................................... 39
4.1. Structure of MNRT .................................................................................. 39
4.2. Role of MNRT in CBNRM: .......................................................................... 43
4.3. MNRT current Capacity Building approach: ................................................. 56
4.4. Collaboration .......................................................................................... 58
4.5. Governance ............................................................................................ 59
4.6. Role of Regional Level: Regional Secretariat, RC’s office. ............................. 59
5. Organizational level: LGAs ........................................................................ 62
5.1. Council management capacities: ............................................................... 62
5.2. CBNRM capacities ................................................................................... 70
5.3. Role of the LGAs: .................................................................................... 77
5.4. Governance: .......................................................................................... 79
6. Lower level (Ward, village and CBNRM) .................................................... 81
7. Civil society ............................................................................................... 85
7.1. Civil Society and social accountability in Tanzania: ...................................... 86
7.2. Civil society and Natural Resource Management: ........................................ 89
7.3. Donors and funding mechanisms: ............................................................. 90
7.4. Role of CSOs in CBNRM: .......................................................................... 90
7.5. Possible options for strengthening Civil Society in CBNRM related approaches: 91
i
8. CB and OD Plan: ........................................................................................ 96
8.1. Capacity Building and organizational development: ..................................... 96
8.2. Principles: .............................................................................................. 96
8.3. Objectives and scope: ........................................................................... 100
8.4. Role of the project ................................................................................ 101
8.5. Strategy and approach .......................................................................... 102
8.6. Type of support and Packages ................................................................ 110
8.7. Possible providers and quality considerations ........................................... 149
8.8. Indicative budget .................................................................................. 149
8.9. M&E process......................................................................................... 150
8.10. Culture of learning .............................................................................. 150
8.11 Sustainability ....................................................................................... 150
Annexes:
Annex 1: ToR of assignment ..................................... Error! Bookmark not defined.
Annex 2: List of tools ............................................... Error! Bookmark not defined.
Annex 3: List of resource persons ............................ Error! Bookmark not defined.
Annex 4: M&E framework with capacity building transition indicators ......Error!
Bookmark not defined.
Tables:
Table 1: Key chapters in management plans for the different CBNRM units ................ 5
Table 2: Tourist hunting companies active in Kilombero Game Controlled Area ........ 15
Table 3: CBNRM status ..................................................................................... 16
Table 4: Actors roles and responsibilities in result area 1 ...................................... 18
Table 5. CBNRM issues identified for result area 1: ............................................... 20
Table 6: Actors, roles and responsibilities for result area 2 .................................... 24
Table 7. Issues related to result area 2 ............................................................... 25
Table 8: Actors, roles and responsibilities for result area 3 .................................... 28
Table 9: Issues related to result area 3 ............................................................... 30
Table 10: Overview transitions required and capacity building per result area .......... 33
Table 11: List of responsibilities and staffing levels of Units under WD .................... 40
Table 12: List of Government of Tanzania Guidelines used in CBNRM activities ........ 44
Table 13: Capacity to use the ICMS .................................................................... 64
Table 14: Basic administrative and financial information per district ....................... 65
Table 15: Staffing availability in Rufiji, Kilombero and Ulanga district councils ......... 67
Table 16: List of LGA positions, qualifications available and capacity requirements ... 68
Table 17: List of vacancies in Rufiji district Council 2013/2014 ............................... 68
Table 18: Overview of capacity issues regarding CBNRM per district ....................... 73
Table 19: overview of relevant CSOs .................................................................. 89
Table 20: Capacity building approaches and activities ......................................... 104
Table 21: Overview package 1 ......................................................................... 113
Table 22: Overview package 2 ......................................................................... 117
ii
Table 23: Overview package 3 ......................................................................... 122
Table 24: Overview of package 4: SWM mainstreaming ...................................... 128
Table 25: Overview package 5: use of NR ......................................................... 131
Table 26: Overview package 6: village level ...................................................... 137
Table 27: Overview package 7: law enforcement ............................................... 141
Table 28: Overview package 8 ......................................................................... 145
Table 29: Overview package 9 ......................................................................... 148
Table 30: Rough budget per capacity building package ....................................... 149
Table 31: Capacity building transition indicators ......... Error! Bookmark not defined.
Figures:
Figure 1: Participatory NRM: 6 legal steps ............................................................. 4
Figure 2: Institutional picture of NRM ................................................................... 7
Figure 3: Theory of Change for result area 1 ....................................................... 17
Figure 4: Theory of Change for result area 2 ....................................................... 23
Figure 5: Council management and tools ............................................................. 62
Figure 6: Capacity Building within the Government system .................................... 66
Figure 7: Social Accountability Model .................................................................. 85
Figure 8: Types of capacity needs at different levels ............................................. 98
Figure 9: package 1 ........................................................................................ 111
Figure 10: package 2 ...................................................................................... 115
Figure 11: package 3:..................................................................................... 118
Figure 12: package 4:..................................................................................... 126
Figure 13 Package 5 ....................................................................................... 129
Figure 14 Package 6: ...................................................................................... 135
Figure 15 Package 7 ....................................................................................... 139
Figure 16 package 8 ....................................................................................... 143
Figure 17 package 9 ....................................................................................... 146
iii
Abbreviations
AA
Authorized Association
AAC
Authorized Association Consortium
AAS EPS
Assistant Administrative Secretary Economic and Productive
Sectors
ASDP
Agricultural Sector Development Program
BDS
Business Development Services
BKR
Beekeeping Reserve
BMU
Beach Management Unit
BTC HQ
Belgian Development Agency Headquarters
BTC TZ
Belgian Development Agency Tanzania
BTC
Belgian Development Agency
CBFM
Community Based Forest Management
CBOs
Community Based Organizations
CBNRM
Community Based Natural Resource Management
CEPA
Communication, Education and Public Awareness
CFM
Collaborative Fisheries Management
CMT
Council Management Team
CSO
Civil Society Organization
DALDO
District Livestock Development Officer
DANIDA
Danish International Development Agency
DPLO
District Planning Officer
DBO
District Beekeeping Officer
DC
District Commissioner
DCDO
District Community Development Officer
DED
District Executive Director
DeNRM
Decentralized Natural Resources Management
DEO
District Education Officer
DFsO
District Fisheries Officer
DFO
District Forest Officer
DGO
District Game Officer
DLNRED
District Lands Natural Resources and Environment
Department
DHRO
District Human Resources Officer
DNRO
District Natural Resource Officer
DPIT
District Project Implementation Team
DPLO
District Planning Officer
DSC
Directorate for Sector Co-ordination
DSM
Dar es Salaam
DT
District Treasurer
DWE
District Water Engineer
EU
European Union
iv
FBD
Forestry and Beekeeping Division
FR
Forest Reserves
GEF
Global Environmental Fund
GoT
The Government of Tanzania
GR
Game Reserve
IDCP
Indicative Development Cooperation Program
IUCN
International Union for Conservation of Nature
IGA
Income Generating Activity
JFM
Joint Forest Management
JWM
Joint Wetlands Management
JLPC
Joint Local Partnership Committee
KVTC
Kilombero Valley Teak Company
LUP
Land Use Plan / Land Use Planning
M&E
Monitoring and Evaluation
MAFSC
Ministry of Agriculture Food Security and Cooperatives
MCS
Monitoring, Control and Surveillance
MEPE
Ministry of Planning and Economic Empowerment
MOEVT
Ministry of Education and Vocational Training
MGCD
Ministry of Gender, Women and Child Development
MH
Ministry of Health
MLCA
Ministry of Law and Constitutional Affairs
MLF
Ministry of Livestock and Fisheries
MLHSD
Ministry of Lands and Human Settlements Development
MNRT
Ministry of Natural Resources and Tourism
MoF
Ministry of Finance
MoFEA
Ministry of Finance and Economic Affairs
MoL
Ministry of Livestock Development
MoU
Memorandum of Understanding
MOW
Ministry of Water
MTR
Mid Term Review
NAFCO
National Agriculture and Food Corporation
NAFOBEDA
National Forest and Beekeeping Database
NAWESCO
National Wetlands Steering Committee
NEMC
National Environment Management Council
NGO
Non Governmental Organization
NORAD
Norwegian Agency for Development Cooperation
NP
National Park
NR
Natural Resource
NRM
Natural Resource Management
NTFP
Non Timber Forestry Product
NWMS
National Wetlands Management Strategy
NWWG
National Wetlands Working Group
v
PELUM
Participatory Ecological Land Use Management
PMO-RALG
Prime Minister’s Office of Regional Administration and Local
Government
PO
Project Officer
RAS
Regional Administrative Secretary
REDD
Reducing Emissions from Deforestation and forest
Degradation
RNRA
Regional Natural Resource Advisor
RNRO
Regional Natural Resources Officer
RUBADA
Rufiji Basin Development Authority
RUMAKI
Rufiji, Mafia and Kilwa
SAGCOT
Southern Agricultural Growth Corridor of Tanzania
SACCOS
Savings and Credit Cooperative Society
SWMP
Sustainable Wetlands Management Plan
TA
Technical Assistance
TANAPA
Tanzania National Parks
TANESCO
Tanzania Electric Supply Company
TFF
Technical and Financial File
TFS
Tanzanian Forest Service
URT
United Republic of Tanzania
USAID
United State Agency for International Development
VC
Village Council
VEC
Village Environmental Committee
VEO
Village Executive Officer
VICOBA
Village Community Banks
VLUP
Village Land Use Plan
VNRC
Village Natural Resources Management
VPO
Vice President’s Office
VPO-DE
Vice President’s Office-Department of the Environment
WBO
Water Basin Office
WCST
Wildlife Conservation Society of Tanzania
WD
Wildlife Division
WDC
Ward Development Committee
WEO
Ward Executive Officer
WMAs
Wildlife Management Areas
WO
Ward Office
WUA
Water Users Association
WWF
World Wide Fund for Nature
vi
Acknowledgements
It is with much gratitude that we would like to thank the management of the
KILORWEMP project, Giuseppe and Pellage as well as the district coordination teams in
Rufiji, Adam and Emmanuel, in Kilombero, Zakayia and Julius, and in Ulanga, James
and Ole, for the sustained support that we have received to obtain the requested
documents, to organize the logistics, and the meetings with the relevant people.
We would also like to mention the three drivers, Ngosha, Msumi and Deo, who safely
drove us to our destinations.
Despite the long discussions and late work hours, the endless car drives, flat tires,
either stuck in the mud or stuck at the wrong side of the bridge, the project team has
been always very patient with us.
We very much appreciate all the respondents in the districts, wards and villages to
answer our never-ending questions.
We hope that our presentations and questions have helped to deepen the reflection on
organizational development and social accountability.
Surely, we like to thank the officials at the Ministries and Regions for their
responsiveness and contributions.
Finally, a big THANK YOU to all those people whom we did not mention, but who have
been very kind and supportive to us in preparing this assessment.
While all advice and information has been greatly appreciated, sole responsibility for
any errors or misrepresentation rests with the authors.
Nashukuru sanaa
Maureen and Kahana
vii
Executive Summary
The
Kilombero
and
Lower
Rufiji
Wetlands
Ecosystem
Management
Project
(KILORWEMP) started in 2013 and is implemented by the Belgium Technical
Cooperation (BTC) in Kilombero, Ulanga and Rufiji District Councils. On request of the
KILORWEMP
project,
a
capacity
assessment
and
organizational
development
assignment in the area of Community Based Natural Resource Management (CBNRM)
has been carried out in the first semester of the year 2014. The assessment was based
on a number of concepts related to Capacity Building and Organizational Development
principles as well as social accountability models. The used methodology included field
visits to the three project districts, namely Rufiji, Kilombero and Ulanga as well as
interviews with the Ministry Officials at the different divisions of the Ministry of Natural
Resources and Tourism (MNRT), and Ministry of Livestock and Fishery and relevant
officials at the regional level. In addition, a number of NGOs and Civil Society
Organizations have been visited in Dar es Salaam as well as in Morogoro and in the
three named districts.
The assessment started in most cases at the "bottom" at the Community Based
Natural Resource Management (CBNRM) level and zoomed out and built the
assessment up from there to the higher levels.
Main knowledge areas were:
A

Land use planning

CBNRM (WMA, PFM, BMU)

Value Chain development of NR related products

Business plans development

Conflict management

Negotiation and contracting

Social accountability
desk
study
assessing
the
available
establishment and management
policies
and
strategies
regarding
the
of Wildlife Management Areas (WMA), Beach
Management Units (BMU), as well as Participatory Forest Management (PFM) Units
provided for insight in the current legal context, while the identification of the key
stakeholders active in CBNRM in Tanzania provided insight in the involvement of
government, development partners, service providers and civil society actors (chapter
2). The main observation is that there does not exist an overarching CBNRM strategy
at
national
level.
The
policies
are
scattered
over
the
different
sectors
(wildlife/wetland/TAWA, TFS/Forestry) within different Ministries (MNRT and Ministry of
Livestock and Fishery). Though there has been considerable investment from several
projects (DANIDA, WWF and GIZ) into the approach, the government is still hesitant to
fully adopt this process and integrate it into the mainstream.
viii
Taking the three result areas formulated by the project as reference point,
performance issues were distilled from previous studies (baseline and TFF) and
confirmed and enriched in the field. These issues constitute the basis for identification
of the capacity gaps and capacity needs at different organizational levels in the three
districts where the project is currently active. The aim was to look at the future
Beneficial Institution (BI) in a more comprehensive way, less from individual and more
from the organizational perspective.
From the assessment transpired the following performance gaps related to result area
1: Key resource users (wildlife, forest, fisheries & land) obtain user rights and are
organized to manage their resource based on wise principles within the framework of
Community Based Natural Resource Management:
Staff of each sector (wildlife, forestry, fishery, land, etc.) has sufficiently internalized
the legal steps to follow and are able to apply them to establish the concerned CBNRM
unit. However, the capacity and ownership of the WEOs and VEOs as well as the
communities is very weak. The omission to involve minorities of the population and
pastoralists from the beginning leads to conflicts later in the process. Boundary
disputes between communities and protected areas are many. Bad documentation,
record and map keeping also leads to misunderstandings regarding the boundaries.
In result area 2, formulated as follows, Key resource users, transformers and traders
(wildlife, forest, fisheries) organized to derive sustainable economic benefits from
Community Based Natural Resources Management through access to markets and
sound business management, it became clear that the LGAs have not been prepared
for developing strategies, understanding and skills regarding creating an enabling
business
environment,
revenue
collection,
conflict
management,
contract
management, value chain, markets and business plans. There are no clear guidelines
to help the DFTs and the communities to sustainably use and manage the units. At the
same time, there is an underlying issue of individual benefit versus communal benefit
in poor communities for especially the fisheries, which makes it hard for the patrollers
to enforce the by-laws and sanction the rules to ensure protection and sustainability.
In result area 3, which is formulated as follows, Strengthened capacities of central,
regional and local government structures to support and monitor the implementation
of policies at local level and improved coordination between Natural Resource
governance stakeholders at all relevant levels, the main issue is the lack of a common
vision amongst the sectors on wetlands management and CBNRM. There is need for a
more holistic approach at the district level. In addition, horizontal linkage of the district
with other stakeholders, such as civil society and businesses is not taking place, which
makes it hard for the different parties to have access to information, to voice their
concerns, to participate in dialogue and debate and to claim rights.
ix
Based on these identified issues the team has formulated transition states for the
project to work towards and which can be considered as milestones on the way to
achieving each of the result areas (see Table 10).
The different levels in the organization have been assessed in terms of Human
Resources availability and quality in chapter 4, 5 and 6 at Ministerial (including
Regional), District and Village level respectively.
At the MNRT, the project is situated under the Wetland unit as part of the Wildlife
division. The project works through the Wetland and Community Based Conservation
(CBC) units to strengthen the recently constituted Task Force. Capacity building falls
under responsibility of the Research, Training and Statistics Unit of the Wildlife
department. Though there exists a solid capacity building plan at the national level,
CBNRM does not seem to be integrated yet. Issues to address are related to
commitment of the government to pull the process and the difficulty to coordinate
across divisions and ministries. The regional level needs to be included in the chain of
devolution to the lower levels. They have a role to play in coordinating the sectors,
mobilizing the stakeholders as well as M&E follow up and conflict resolution.
District level involves many actors that need capacity strengthening. On one hand, the
technical staff have been organized into the District Facilitation Team, including
specialists from the land, wildlife, forestry and fishery sectors, which is responsible for
the establishment of the CBNRM Units and the support to the communities in the
management of the units as well as in sustainable use of the natural resources on the
units. Most of the professionals are well qualified and capacitated in technical terms to
establish the CBNRM Units, however, not so strong in empowering, mentoring and
coaching others. At the same time, the DFT do not have the competency to support
the CBNRM units in the stock assessments, the preparation of harvesting plans of the
natural
resources
and
other
requirements
in
preparation
of
the
sustainable
management of the CBNRM units. In addition, the cooperative officer, trade officer,
lawyer, DLPO, DT and DHRO amongst others within the LGA have roles to play to
create an enabling business environment and to enforce the by-laws. They have not
been sufficiently capacitated to deal with this new approach. Since the abrupt stop of
the LGRP II program, the generic council management systems are no longer
strengthened and new staff is not conversant with the Council Management tools,
which hampers the council to operate smoothly, and will need to be considered when
the project will gradually integrate into the mainstream of the district council systems.
Village level government, Village Natural Resource Committees, and CBOs all need to
be reinforced and empowered to be able to select service providers to do stock
assessments and to help with the harvesting plans as well as negotiate with investors
and suppliers and traders on price setting.
One way to strengthen to lower levels is through support from civil society, which is a
x
new approach for BTC and the government. An assessment of potential CSOs which
could play different roles at different levels has been described in chapter 7. The report
shortly sketches 3 options to explore for BTC to address this approach.
For the formulation of the CB Plan, the strategy was to address organizational capacity
building as a package at each level. Based on the identified performance gaps for each
of the result areas, the related actors, who play a role to address these performance
gaps, and their capacity weaknesses are the basis for the identification of the capacity
building activities. The combined improved capacities will address the specific
performance gap for that result area.
The rearrangement of all CB activities per actor then constitutes the basis for the
packages that are developed into a capacity building plan. The packages will be
delivered in three phases:
Phase 1: Short term

To build commitment at national level

To keep/revive momentum at local level (quick wins)

To respond to demand for concrete actions

To start build relationship with civil society
Phase 2: Medium term

To deepen and expand commitment for CBNRM at WD units

To start strengthening CSOs at different levels.

To develop regional level facilitating capacities: AAS EPS and RNRO

To strengthen capacity of RC and RNRO in sustainable conflict management

To build capacity of sector staff at all levels

To change mind sets of district teams in facilitating and empowering lower
levels

To empower lower levels in technical capacities as well as power related
negotiations

To develop strategy to further explore the 7 commodity chains
Phase 3: Longer term

To further embed CBNRM in the Ministries

To follow up and anchor capacities along the organizational lines

To identify and address remaining capacity gaps

To address result area 2

To support CSOs in playing their role of service provider, watchdog, social
accountability monitor and advocacy organization.
Each of the packages addresses a specific outcome of a desired (transition) state of
the organization.
Per package, one lead service provider will be recruited to organize the complete
package, meaning he/she will prepare and organize the modules (trainings or retreats
or field visits) by different providers, and will ensure the on-the-job-training, the
xi
individual and organizational learning from beginning to end and is responsible for the
expected outcome of that package.
Each package will consist of a series of activities (modules) that include at least the
following components:
–
–
the preparation of one (or a series of) :
•
Course (s), and/or
•
Training (s), and/or
•
Work shop (s), and/or
•
Field visit (s), and/or
•
Retreat (s) or
•
any other event (s) on specific topics
each event will include the formulation of an organizational and individual
action plan, which indicates what the person(s) will work on while
implementing his/her “normal” plan. This means it is integrated in the
existing work plans, it is not an additional “separate” plan.
–
follow
up
support
and
monitoring
of
the
results
and
progress
in
implementation of the action plan, by mentoring or coaching on a regular
basis (every 3-6 months). The service provider will visit the districts and
jointly assess what went well and what did not work out and will provide
“on-the-job training” (on average) 2 times after the event with a few
months in between the visits.
–
learning: jointly developing the lessons learnt and way forward. This means
that every 6 months there will a session organized with those who have
received capacity building and on-the-job training and lessons learned will
be identified and integrated in the next periods.
Each package also involves several layers of the organization, where the top layers are
supporting lower layers as in a kind of cascade (see figures 9 to 17) of capacity
building support (similar to the ToT model).
The following packages are foreseen:
Package 1: National level:
To build commitment within MNRT and capacity for developing a common CBNRM
approach
Package 2: Regional level:
To build capacity of RS staff to respond to concerns and request for support from the
LGA levels, Civil Society as well as Private sector.
Package 3: District level:
xii
To mainstream wetland management at district level
Package 4: District level:
To build facilitation and empowering skills of DFT
Package 5: District level:
To strengthen capacity to create enabling business environment for DFT plus lawyer,
cooperative officer, trade officer, TFS, TCCIA and the project staff
Package 6: Village level:
To strengthen village leadership in leadership, negotiation, contract management,
conflict resolution
Package 7: District to village level:
To strengthen law enforcement mechanisms
Package 8: Civil Society
To strengthen several levels of networks to become stronger partners in relation the
LGAs and CG (also see chapter 7).
Package 9: Project staff
To strengthen NTAs and DPCs in specific skills
For each package, a lead service provider will be selected through a call for proposals,
which can buy-in the technical expertise from elsewhere or organize the participation
of the relevant target persons in already available training at existing institutions or
organize a retreat program or site visits while ensuring quality and tailor made follow
up and backstopping after the main events.
Each package will clearly indicate the quality criteria to which the lead provider has to
adhere, as well the time frame and calendar, which has been developed in participation
with the target group.
The quality criteria for the service provider include:

Relevance of the team composition in terms of competency

Academic level of the team members

Experience with similar assignments in similar context

Innovative aspects in the proposal

Booked results in relations to capacity building with LGAs

References responses
Finally, it is recommended that the Director of Research, Training and Statistics of the
Wildlife Division will be involved in the development of the packages at national level,
while the HROs of the three councils will be involved in the development of the details
at district level so that the change for sustainability is increased.
xiii
xiv
1. Introduction
The Belgium Technical Corporation (BTC) focuses in its current IDCP (2010-2013) on
two sectors, namely: Local Government Reform and Natural Resource Management.
Within that context, amongst others, two potentially complementary projects were
recently formulated: BTC Scholarship Program and the Kilombero and Lower Rufiji
Wetlands Ecosystem Management Project (KILORWEMP-NRM).
Since the strengthening of the organizational capacity/development of the local and
central actors is key for the success of the KILORWEMP, it seems only logical that the
scholarship program will support the capacity strengthening part of the project in the
concerned districts and concerned regional and central departments with the intention
to upscale and enlarge the scope of the capacity building activities to the other
selected districts for the scholarship project, where relevant.
1.1.
The Projects:
1.1.1. KILORWEMP project
The KILORWEMP project was formulated in mid 2011 and implementation started in
2013. It takes into account the lessons learned in previous BTC supported projects
such as Kilombero Valley RAMSAR Site Project (KVRS) and the Eastern Selous project.
It strives to support the implementation of existing policy framework of Decentralized
Natural Resources Management (DeNRM) around the key concept of Community Based
Natural Resource Management (CBNRM). It has been designed to support further
consolidation of such processes in three target districts, namely Kilombero, Ulanga and
Rufiji, while at the same time addressing key issues of policy environment such as
stakeholder’s coordination and monitoring of policy implementation.
Its specific objective is “strengthened capacities to implement the sustainable
management policy and regulations to the Wetlands Ecosystem of the
Kilombero
Valley
and
Lower
Rufiji,
fostering
sustainable
livelihoods
development and more effective natural resources governance within the
decentralization framework”.
In May-June 2013, a Baseline study was conducted to:
1. Validate the project strategy as described in the TFF (updated review including
ToC)
2. Elaborate an M&E system
3. Elaborate the criteria for selection of priority interventions and areas
4. Propose quantitative targets of the project and a preliminary selection of
priority intervention sites
An extensive participatory assessment of the situation and the formulation of the
Theory of Change for the three result areas of the project have been conducted and
provided for the first inventory of capacity needs based on the problem analysis and
intermediate state formulation within each result setting.
1
1.1.2. Scholarship program:
The Belgium Government has supported the Tanzanian Government in capacity
development of its officials for many years in providing a scholarship program for
undergraduate and graduate students. Recently, the focus of the project was
reoriented from providing individual scholarships in Belgium or Tanzania to focus on
long-term investments and sustainability through organizational development of
national institutions (Beneficiary Institutions, BIs) related to the targeted sectors,
namely Local Government Reform and Natural Resource Management. BIs are
identified at the level of Ministries, Regional administration and LGAs in the following
districts: Kigoma MC, Kigoma DC, Kibondo DC, Kasulu DC, Kilombero DC, Ulanga DC,
Rufiji DC, Mkuranga DC. This identified geographical concentration is related to the
presence of other BTC projects. The new scholarship program started in July 2013 and
ends in April 2018.
Three of the identified districts in this program overlap with the concerned districts of
the KILORWEMP project, which provides for the opportunity to complement each other,
create scope for up scaling and find synergy.
1.2.
Objectives of the current assignment
The main objective of the assignment is:
“Prepare an assessment of training and capacity development needs in selected
sectors (NRM and Local Government) of the Beneficiary Institutions (BI), taking into
consideration relevant organizational level performance goals. The identification of
needs will inform a plan for training and capacity development support”.
1.2.1. Specific tasks:

Finalization of the assessment methodology based on literature review and
feedback from BTC and counterparts, fine tuning tools and final report outline,
finalization of the calendar

Site visits to the target institutions: collection and review of documents,
structured interviews and staff survey, including interviews with senior LGA
staff, focus group discussions with teams/units, full
team meeting on
organizational level regarding capacity building objectives

Reporting: submission of draft report and submission of final report.
1.3. Concepts
1.3.1. Capacity Building
There exists a multitude of definitions regarding capacity and capacity building, of
which the consultants propose the following as most relevant for this assignment:
2
Definitions:
Capacity 1 : the ability or power of an organization to apply its skills, assets and
resources to achieve its goals.
Capacity Building2: an on-going evidence driven process to improve the ability of an
individual, team, organization, network, sector, or community to create measurable
and sustainable results.
Organizational Capacity Building 3 : the strengthening of internal organizational
structures, systems, and processes, management, leadership, governance and overall
staff capacity to enhance organizational, team and individual performance.
A more dynamic perspective of “capacity” is described by ECDPM 4 : a continuous
process by which individuals, groups, institutions, organizations and societies enhance
their abilities to identify and meet development challenges in a sustainable manner.
Greater emphasis is placed on questions of role and relationships, attitude and
responsibilities at inter-organizational and societal levels.
1.3.2. Community Based Natural resource management (CBNRM):
Community Based Natural Resource Management is a concept, which is only recently
introduced in Tanzania. Community Based Natural Resource Management (CBNRM)
refers to the goal of “sustainable natural resource management at the lowest
appropriate
governance
level”.
CBNRM
is
very
much
about
local
community
governance of natural resources on village lands. Lessons learnt to date show that the
principles of CBNRM work fairly well when it relates to subsistence use, however, as
soon as natural resources are treated as “economic goods”, where they have value,
are traded and enter commercial markets to be exploited for profit, empowering local
community management is simply not enough. There is a need for more holistic
management by involving the “whole value chain” (ie the private sector, the traders,
transporters and value added markets). This means an element of “co-management”
must prevail, a partnership between communities, the state, resource users and
traders.
In Tanzania CBNRM currently entails three forms of natural resources units to be
managed by the communities: Wildlife Management Areas (WMA), Participatory Forest
Management (PFM), and Beach Management Units (BMUs).
CBNRM units are most often started up after communities have established and
approved their village land use plans, so that exercise is intrinsically part of the whole
process.
1
Organizational Capacity Building Framework, USAID and Aidstar Two, Technical brief no2, January 2011
2
idem
3
idem
4
Land, A. 2000. Implementing institutional and capacity development conceptual and operational issues, (EDCPM Discussion paper 14)
Maastricht, ECDPM.2
3
1.3.3. Governance and Social Accountability
Social Accountability is another concept that is still relatively new in Tanzania. The
dimensions of social accountability are manifold. They have been conceptualized by
several stakeholders developing different models/approaches. It is understood that
social accountability mechanisms complement and enhance conventional internal
(government) mechanisms of accountability. Therefore, the project wishes to explore
possibilities for complementing its current approach with the strengthening of the role
and possible involvement of civil society. Some basic concepts on social accountability
have been presented in chapter 7.
1.4. Methodology
The framework for the methodology is based on what already has been done during
the baseline and further developed in the mean time, as presented in the annual
report, especially regarding Theory of Change, the intermediate states and mitigating
measures to address assumptions and the log frame performance indicators.
The starting point and core of the assignment is the participatory process to establish,
manage and harvest NR products from the Community Based Natural Resources
Management (CBNRM) areas, for which the following legal steps have to been made:
Figure 1: Participatory NRM: 6 legal steps
Par cipatory NRM : 6 legal steps towards CBNRM
Target 1
Target 2
Target 3
priority site
included in DDP
resource brought
under CBNRM
wise use of
resources
Step 1
Priori ze sites through district resource
inventory
Step 2
Site strategic Plan included in DDP
Step 1
Resource user group formed
Step 2
Boundary described and mapped
Step 3
Resource assessment
Step 4
Resource management and plan
prepared
Step 5
Village by-laws approved
Step 6
User rights obtained
Step 1
Implementa on of Management plan
There are three forms of CBNRM under consideration, namely Wildlife management
Areas (WMA), Participatory Forest Management (PFM) areas, which include Community
based Forest management (CBFM) as well as Joint Village Forest reserve (JVFR), and
Beach Management Units (BMU).
4
Target 3: The development and implementation of the management plan differs for the
different type of Units.
Table 1: Key chapters in management plans for the different CBNRM units
WMA
BMU
PFM
Surveillance (patrolling)
Surveillance (patrolling)
Like PFM and WMA (on the
left)
Census/harvesting plan
Census/harvesting plan
Landing site improvement
Resource management
Resource management
Improved sanitation
Mitigating
pressure
(fire
Mitigating
pressure
(fire
Artificial reefs
and poaching)
and poaching)
Community development
Community development
Re-stocking
Value
Value
Protection
added
economy
added
economy
development
development
grounds
Capacity development
Capacity development
Improved
of
breeding
processing,
storage and marketing
M&E
M&E
Trading
legal
for
illegal
gears
Marketing
Marketing
CEPA campaigns
The red line throughout the assignment was:
Performance
Roles and
organization
response
al level
bilities
Capacity
Capacity
need
gap
Package
Capacity
support
Institutional
Embedding
The assessment started in most cases at the "bottom" at the CBNRM level and zoomed
out and built the assessment up from there. The reason was to make the aimed
Capacity Building and Organizational Development Plan as practical and feasible as
possible.
Main knowledge areas were:

Land use planning

CBNRM (WMA, PFM, BMU)

Value Chain development of NR related products

Business plans development

Conflict management

Negotiation and contracting

Social accountability
5
Key issues at almost all levels are:

institutional arrangements (systems, processes, etc.)

roles and responsibilities,

knowledge and skills

accountability

inter-level communication and connection
For LGAs the CB assessment was mostly NRM specific regarding:

Capacity to plan, budget and implement NRM plans

Capacity to manage and support NRM related staff

Capacity to monitor progress and be accountable to higher and lower levels

Capacity to support the lower levels (access to information, participation and
mobilization of the villagers, guidance in the regulations and legal aspects, etc.)

capacity to provide enabling environment for CBNRM, land use planning as well
as Value Chain Development and business development of NR related products.

capacity to generate revenue without killing the businesses.

capacity to coordinate amongst departments

capacity to deal with conflict management
For the CSOs, NGOs and CBOs the following axes were assessed:

capacity to support the villages in land use planning

capacity to support CBOs in the creation of CBNRM

capacity to provide access to information

capacity to empower the CBOs and villagers to hold LGA accountable

capacity to mediate, avoid and address conflicts

capacity to mobilize voice and generate space for dialogue

capacity to influence policies

capacity to enforce and make sanctions happen
1.5. Tools:
The tools that were be used are detailed in the annexes. The main tools were:
o
Introduction to the concepts in power point presentation
o
Discussion points for Focus Group Discussions
o
Organizational Capacity Assessment (OCA) adapted for each audience
o
Mind mapping
o
Questionnaires (LG generic)
o
Workshop guidelines and programs
o
Stakeholder debriefing agenda
See annex 2 for the list of tools
For the governance and harmonization part, the links between organizational and
institutional levels and processes have been assessed.
6
Figure 2: Institutional picture of NRM
Advocacy
CSOs:
TNRF
TFCG
Bunge
MNRT
PMO-RALG
MPs
NGOs
RS
Full
Council
CSOs
MoL
Commi ees
CBOs
LGA CMT
Water
Agric
NRM
Livest
ock
Ward
WEO, WDC,
ward tribunals
Village
VLUC, VNRC
Trade
magis
trate
Private
Sector
CBNRM
Institutional level between CBNRM and MNRT:
o
Capacity to connect the different levels:
o
Facilitate and guide lower levels
o
Report to higher levels
Organizational at LGA level:
o
Vertical between RS and ward to CBNRM
o
Horizontal between departments
o
Horizontal with full council
o
Horizontal with other stakeholders
7
2. Context Analysis
2.1. History of CBNRM
In the past 20 years, there have been many lessons learnt with pilot CBNRM programs
like Participatory Forest Management (PFM in over 3000 villages), Sustainable
Wetlands Management (SWM in 200 villages), Wildlife Management Areas (WMA in 300
villages), Beach Management Units (BMU in 700 villages), Water Users Associations
(100s), Beekeeping Associations (100s), etc. Based on this experience, each sector is
still developing/pioneering/piloting its approach, although some toolkits, training aides,
materials, guides and “how to do manuals”, do exist, especially after SWMP, much
work is still needed to make them SMART and communicable to local users.
Tanzania has since the late 1980’s been in the process of developing a policy
framework
for
Community
Based
Natural
Resources
Management
(CBNRM).
Recognized as a key feature of its long-term development and poverty reduction
strategy (referred to as MKUKUTA), is the importance to engage in citizen
participation. A policy of Decentralization by Devolution (DxD) has been seen as of
crucial importance to pass more responsibility to the appropriate decision making level,
the Local Government Authorities (LGA), at both district, village and user level, in what
is known as a “bottom-up approach”.
The development strategies of Tanzania, stress the basic importance of sustainable
management of natural resources for Local Economic Development (LED), of relevance
in a number of national strategies, such as:
2.2. Policy and Legal environment
A whole array of sector level policies is also relevant to CBNRM, notably:
National Land policy (1997): The overall aims of the National Land Policy(NLP)are
to promote and ensure a secure land tenure system, to encourage the optimal use of
land resources, and to facilitate broad-based social and economic development without
upsetting or endangering the ecological balance of the environment. The NLP promotes
protection of natural resources and the environment. Village lands and some
communal areas can be reserved for conservation purposes (e.g. forests on village
land). Highly sensitive areas such as water catchment areas, areas of biodiversity,
national parks, wetlands, etc. are also protected. Furthermore, the NLP states that the
government will ensure that permits, licenses, claims and rights for exploitation of
natural resources are issued in line with land use policies, and environment
conservation policies and programs.
8
Wildlife Policy (2007): The mission in the Wildlife Policy is to conserve, manage and
develop wildlife and wetland resources, and sustainable utilization that will contribute
towards poverty reduction. Government will not engage itself in conducting business in
the wildlife industry, but is creating a semiautonomous body, Tanzania Wildlife
Authority (TAWA) to manage its estates. District Councils have been assigned a
decentralized role to provide extension service, formulate and enforce by-laws, provide
conservation education to villages and prepare development plans that protect wildlife
and wetlands. Local communities on village lands have a role of protecting and
benefiting from these resources. Some of the Wildlife Policy strategies that have
significance for CBNRM (ie of wildlife and wetlands) include: Wildlife Management
Areas (WMA), which provide joint management opportunities between state and
communities; RAMSAR Sites as places on international important biodiversity.
National Fisheries Sector Policy and Strategy Statement (1997): The objectives
of the policy are to ensure effective use of fish resources to increase production, and
enhance fish knowledge base, to contribute to the local economic growth. Amongst the
main objectives of the policy are to improve involvement of fisher communities in the
planning, development and management of fishery resources and to incorporate
gender perspectives. CBNRM is encouraged through Beach Management Units (BMU)
which provide means for users to apply for fishing rights and efforts are underway to
adopt a more ecosystem based approach through Collaborative Fisheries Management
Areas (CFMA), where several BMUs share fishery units under one association to
collectively manage the fishery.
The National Forest Policy (1998): The policy calls for ensuring ecosystem stability
through conservation of forest biodiversity, water catchments and soil fertility and
enhance national capacity to manage and develop the forest sector in collaboration
with other stakeholders. It introduces a decentralized system, which includes village
land forest reserves (VLFR) and mandates district councils to manage national forest
reserves on behalf of the central government. There are also local government forest
reserves, managed by local authorities, specialized executive agencies or even by the
private sector.
Ramsar Convention on Wetlands: the Government of Tanzania ratified the Ramsar
Convention on Wetland in 2000. It is an important treaty for the conservation and
sustainable utilization of wetland resources. It recognizes the fundamental ecological
functions of wetland and their economical, cultural and scientific value. Under SWMP
(2013) support to the Ramsar Convention has seen the development of Guidelines and
Toolkits for sustainable wetlands covering sectors like fisheries, wildlife, irrigation,
pastoralism, resource inventory, strategic economic assessments, and CEPA materials
and resource books for schools and training centers.
9
2.3. Stakeholders
2.3.1. Government institutions
Apart from the Government Institutions involved in NRM under the combined umbrella
of MNRT and PMO-RALG, which will be discussed in chapters 4 to 6, other institutions
can be listed/summarized as:

Vice President’s Office –Division of Environment
The Division of Environment (DoE) was transferred to the Vice President’s Office in
1995 to give in the requisite priority and attention in promoting management of the
environment. DoE is responsible for the overall environmental policy and regulation,
coordination and monitoring of the environment policy implementation in the country.
The institutions which have enforcement roles in environmental matters and which are
coordinated by the DoE, include sector ministries, Local Government Authorities and
the National Environment Management Council (NEMC). DoE coordinates these
institutions by reviewing Environmental Action Plans from ministries, district councils
and villages.

Ministry of livestock and fisheries Development
The Ministry of Livestock and Fisheries
Development (MLFD) 2 mandates that are
critical to CBNRM, firstly is the responsibility to provide guidelines, capacity building
and designation of areas for sustainable rangeland management, thereby reducing the
threat of pastoralists clashing with other land uses such as agriculture, fisheries and
natural resources conservation.
Another important role of MLFD is to patrol inland
waters and facilitate revenue collection. Improved fisheries law enforcement will create
a more conducive environment for BMUs to operate. The MLFD’s capacity to fulfill
these roles is thought to be limited.

National Land Use Planning Commission
The National Land use Planning Commission (NLUPC) is enshrined in the Act of 2007.
The Commission was established so as to harmonize and co-ordinate land use policies
and legislation, to promote effective management and enhancement of land quality
with the aim of ensuring sustainable utilization of land, so that it can provide optimal
production to enhance socio-economic development and maintenance of land quality
for long term productivity. The NLUPC is required by the Act to register VLUPs
throughout the country and to provide advice and build capacity for the proper
implementation of Land Use Plans. NLUPC also has a role in building district capacity to
conduct VLUPs as well as facilitating their preparation.

RUBADA
The Rufiji Basin Development Authority (RUBADA) is a philanthropic government
organization established by Act of Parliament in 1975 charged with multi-sectoral
10
responsibility of promoting, regulating, and coordinating sustainable ecological and
socio-economic development in the energy, agriculture, fisheries, forestry, tourism,
mining, industry, transport and environment sectors within the Rufiji River Basin.
According to RUBADA the Rufiji Basin has significant potential for both irrigated and
rain-fed agriculture. The suitable area for irrigated agriculture is estimated at 622,400
as shown below. The RUBADA website ranks the Kilombero Valley as the first priority
zone in the Rufiji Basin because of its fertility. The Lower Rufiji Valley is ranked second
with the Ikwiriri Block occupying about 15,000 ha as suitable for irrigated agriculture.
2.3.2. NRM Development Partners

WWF
WWF is working with MNRT as well as local communities and the private sector to
protect the Udzungwa Mountains National Park (UMNP), which occupies part of
northeastern Kilombero District. Protection includes conservation and management
support,
ecological
monitoring
and
research,
infrastructure
development
and
ecotourism initiatives. With financing through WWF Norway, a conservation project will
focus on supporting management of forests outside the UMNP, including improvement
of land use practices in village lands and enhancement of alternative livelihood options.
The United States Agency for International Development (USAID) and MCA-Tanzania
have partnered together with WWF in Tanzania to support Wildlife Management Areas
(WMA’s). WWF intends to build the capacity of Community Based Organizations (CBOs)
to earn income through ecotourism, attract investment and improve living standards
for families. WMA’s are also instrumental in protecting and managing the environment.
Over the past five years, USAID has been supporting the development of WMA’s in
Tanzania by providing nearly $2 million for WWF to work with rural communities.
WWF implemented a project in the EAME area with funding from WWF – Norway, which
aimed to improve the well-being of coastal Rufiji-Mafia-Kilwa communities through
participatory management of marine resources and establishment of local level
institutions for fisheries co-management. The project trained 25 change agents,
enabling the establishment of 23 new Beach Management Units (BMUs) and 6
Collaborative Fisheries Management Areas (CFMAs). Four VICOBA groups were
established with over 120 members (55 female and 65 male) enrolled and provided
with a capital loan. Loans issued through the VICOBAs had a repayment rate of 100%
and increase on profit of 90%.

DANIDA/ Finnish Embassy
From the year 2000 up to 2013 wetland management was part of the Embassy of
Denmark’s Environmental Sector Programme Support. Outputs of the wetlands
component related to improved integration of wetland issues into planning processes
and on the ground implementation in Iringa and Mbeya Regions, with more focused
11
improvement of sustainable wetland management in 3 selected wetland sites within
the two Regions. Other field-based outputs were directed at management planning
process and livelihood support in the Lake Natron Ramsar Site and consolidation and
replication of sustainable wetland management in the Malagarasi-Muyovozi Ramsar
Site.
In addition to the Sustainable Wetlands Programme, from 2003 – 2013 Danida also
supported the national Participatory Forest Management programme in 4 Regions of
Mbeya,
Iringa, Morogoro and
Lindi. Districts supported in Morogoro included
Kilombero, Kilosa, Mvomero and Morogoro Rural. Danida support was provided through
local government structures, employing the use of a District Facilitation Team that
would promote and facilitate PFM planning, budgeting and implementation in selected
villages. From 2006 to 2009 Danida supported CBFM initiatives in 6 Village Land
Forests in Kilombero District, although not a single forest was able to complete the 6
steps.

GIZ
The Conservation and Sustainable Use of Biodiversity program me is implemented
through GIZ and KfW. The program aims to contribute to stabilizing globally significant
natural ecosystems, while improving the livelihoods of the local population. The
program will focus on the following activities, reforming wildlife management;
strengthening
district
authorities
in
natural
resource
management;
enhancing
community-based conservation and benefit-sharing; ameliorating the management of
the Selous Game Reserve; and improving social and economic infrastructure in
selected districts. The lead executing agency is the MNRT’s Wildlife Division in charge
of wildlife protection, and for the management of the Selous Game Reserve (SGR.
2.3.3. Service Providers
Currently there exists a wide range of service providers in the area of NRM, which can
be summarized as follows. A more detailed analysis is provided in chapter 7 and annex
XXX
a) CBNRM Advocacy Groups: These NGOs, based in Dar es Salaam or Arusha, could
be used to advocate for the benefit of the CBOs, notably HAKIARDHI, Tanzania
Natural Resources Forum (TNRF), Tanzania Forest Conservation Group (TFCG),
MJUMITA, Lawyers for Environmental Action in Tanzania (LEAT), and Association of
Local Authorities of Tanzania (ALAT), etc.
b) Microfinance institutions are active in the districts and could be important partners
to support financial services needed for the NR based livelihood activities (e.g.
SACCOS, VICOBA, Primary Societies, etc.).
c) Training centres: MNRT wildlife training centres at Mweka, Pasiansi and Lukuyu
Sekemaganga, forest and beekeeping at Olmontonyi and Moshi, Local Government
Training Institute (LGTI) at Hombolo as well as fisheries centres in Nyegesi
12
(Mwanza) are active in key sectors relevant for the project and could be venues for
formal training of district staff and communities in the area.
d) Universities and research centres are active in relevant aspects of the NRM issues
in the project area; this includes the local campus of the Moshi University College
of Cooperatives and Business Studies (MUCCoBS), the University of Sokoine (SUA)
(Morogoro) and University of Dar Es Salaam (UDSM), as well as wildlife research at
TAWIRI (Arusha), forestry at TAFORI (Morogoro), fisheries at TAFIRI, etc.
e) School Wildlife Clubs play an important role in educating the next generation on
sustainable livelihoods and could be involved, such as Malihai Clubs of Tanzania
(MCT),
2.3.4. Private Companies
Important actors include private companies investing in agriculture (eg rice), irrigation
(eg sugar), tourism (eg sport hunting) in the Landscape.
A common, landscape wide integrated Land Use Planning (LUP) framework is still
lacking to ensure that common criteria are used before land allocation processes can
go forward, however some initiatives are underway to prepare district investment
profiles (eg Kilombero and Ulanga), and land banks are being set aside for Private,
Public Partnerships (PPP).
Forestry

Kilombero Valley Teak Company (KVTC):
KVTC was established in 1992 with an 8,000 ha teak plantation at the heart of the
project and the protection and management of 20,000ha of native forests, wetlands
and a wide range of wildlife and flora within the project area. KVTC is designed to
deliver high value teak, sustainably sourced from Kilombero and Ulanga Districts.
The main objective of KVTC is to establish a processing industry in the area where the
timber is sourced. In mid 2009, KVTC established a modern sawmill, drying facility and
value adding plant. At present the plants process around 30,000m3 of logs per annum
and this is expected to increase to around 80,000m3 once the plantations have reached
rotation age. In 2002 KVTC embarked on a Village Out Grower Project where annually
teak plantations are being established in the associated villages. KVTC finances the
establishment and maintenance of these new teak plantations and guarantees a
market at a minimum age of 15 years for the trees. KVTC is a stakeholder in the
Kilombero Valley Ramsar Site, with large areas of natural woodlands under its area of
operations. There are currently discussion ongoing between KVTC and KILORWEMP on
piloting the implementation of a Joint Forest Management arrangement under a private
forest regime. KVTC also has wildlife resources and biodiversity areas under its area of
jurisdiction.
13
Agriculture [rice; sugar]:

Kilombero Sugar Company Limited (KSCL) of ILOVO
Kilombero Sugar Company Limited (KSCL),is Tanzania's biggest sugar firm that
operates from Kilombero District in Morogoro Region, and is part of Ilovo Sugar Group.
KSCL is an integrated sugar estate covering about 23,000 hectares. KSCL works with
8,000 out growers. KSCL only grows sugar cane, farming 10,000 hectares, 65% of
which is under irrigation. The out-growers handle the remaining 13,000 hectares.
As a major user of land and water resources in the Kilombero Valley, KSCL is a very
important stakeholder with regards to sustainable management of the Ramsar Site.
The use of irrigation water, chemical fertilizers and the production of agricultural
wastes are obviously areas by which KSCL can impact the valley. The expansion of
sugar farming, through the expansion of the outgrower schemes, also needs to be
monitored and well coordinated by the relevant authorities.

Kilombero Plantations Limited (KPL) of Agrica Limited
Agrica Limited was founded in September 2005 to develop model sustainable
agribusinesses in East Africa. In 2010, Agrica was awarded National Strategic Investor
Status by the Tanzania Government. Kilombero Plantations Limited (KPL) is the
Tanzania subsidiary of Agrica Limited, developing the 5,818 ha Mngeta Farm, situated
in the fertile Kilombero Valley, one of best agro-eco zones for rice farming in East
Africa. As with KSCL, KPL is a large-scale user of land and water resources. The
expansion of their outgrower SRI scheme may have major impact on the ecology of
the Ramsar Site. There is a need for the authorities to monitor and coordinate the
future ppans of KPL in connection to the sustainable management of the wetlands in
the Kilombero Valley.
Tourism:

Wild Frontiers Tanzania (WFT)
Wild Frontiers Tanzania (WFT) has been fully operational for four years. Based in
Arusha, WFT have a fleet of vehicles and offer mobile camps, seasonal permanent
camps in Serengeti and Ngorongoro, walking safaris and Kilimanjaro hikes. Wild
Frontiers Tanzania is a subsidiary of Wild Frontiers, which has operated safaris in Africa
since the early 1980's. Wild Frontiers has offices or representation in South Africa,
Uganda, Tanzania and now also in Zimbabwe. A broad range of products from luxury
lodges to camping, diving, climbing, bird-watching, adventure activities and special
interest safaris are available. The Wild Frontiers Tanzania does not appear to be active
in the Kilombero Valley at this point in time.
Kilombero North Safaris Limited amongst other activities also runs a fishing camp,
located on the Mnyera River. The camp comprises four tents, which accommodate twin
bed arrangements. All tents are built upon raised wooden decking, with a private
14
viewing deck overlooking the river and are tastefully decorated with locally made
furniture and soft furnishings. A mess area, also on a raised wooden deck overlooks
the river, and a covered lounge and sitting area completes the main camp. KNSL fly
camp, is built on the banks of the Ruhudji River. This camp comprises three of the
“traditional”
safari
tents.
KNSL
is
still
active
in
the
Kilombero
Valley.
Table 2: Tourist hunting companies active in Kilombero Game Controlled Area as of
2011
Name Hunting Company
Area of Operation
Location of Hunting Block
Kilombero North Safaris
Kilombero Game Controlled
Mlimba Ward, Kilombero District
Limited
Area (North)
Wild Frontiers Limited
Kilombero Game Controlled
Area (South)
Mngeta Ward, Kilombero District
Boma Ulanga Ward, Ulanga District
Malinyi Ward, Ulanga District
Source: Tanzania Professional Hunters Association website 2011
The presence of at least one tourist hunting company in the Ramsar Site is an
opportunity for stakeholders to involve them in sustainable management of natural
resources. The hunting companies are expected to have experience with the tourism
value chain and may be convinced to share their insights with the developers of the
WMAs and fishing camps. The companies may even have capacity that can be shared
with other stakeholders.
15
2.4. CBNRM status
Table 3: CBNRM status
Resource
Wildlife
Forests
Inland
Legal
Delimitation and
System of
framework
organization of users
internal rules
WMA
Boundary disputes with
By laws developed
WWF model:
Fines and permits
Conflicts referred to
Not enough support
Timely and
protected areas and
and process is
reporting by
enforced by By-
legal system of local
from national level
costly process
investors
implemented
communities to the
Laws drafted as
government
Unclear policy on
according to 6 legal
AAC
part of WMA
buffer zone
steps
CBFM and JFM
VNRCs are managers
By laws developed
NAFOBEDA is not
Fines and permits
Conflicts referred to
Weak Forest Law
and BKR
of VLFRs
and process is
functional, PFM-MIS
system enforced by
legal system of local
Enforcement from
implemented
being developed,
By-laws
government
central government
according to 6 legal
NAFORMA is national
steps
forest inventory
No control possible in
By laws developed
Some LGA monitoring
Fines and permits
Conflicts referred to
Very little support
current setting
and process is
of fish landings,
enforced by By-
legal system of local
from MLFD and other
implemented
licensing of vessels is
Laws drafted as
government
national actors
according to 6 legal
monitored by LGA
part of BMU process
BMUs
fisheries
Monitoring
Sanctions
Conflict resolution
Enabling
environment
process
steps
Agricultural
Village land use
Shifting cultivation still
Fragmented, not
LGA and MAFC
Almost no system
Conflicts referred to
Crop marketing
land
plan
the biggest deforesting
rule based,
monitor crop yields
of sanctions beyond
legal system of local
boards exist mainly
mechanism
independent
for food security
quarantines during
government
for traditional export
households acting
purposes
pest outbreaks
crops, food crops
freely
suffer from periodic
export bans
Grazing
Village land use
Based on carrying
Fragmented, based
LGA and MAFC
Quarantines during
Conflicts referred to
RC support to
land
plan but not for
capacity which is
on customary rules,
monitor livestock
pest outbreaks,
legal system of local
evacuate pastoralists
migrant
doubtful criteria for
independent
numbers for food
evacuateions and
government, though
Very little support
pastoralists
only sedentary cattle
households acting
security purposes,
restrictions from
often overruled by
from MLFD
freely
MLFD and LGA
local land use plans
central government
monitor auction sales
and by-laws
directives
16
3. Result areas:
As said before, the aim of the KILORWEMP project is to support the implementation of
existing policy framework of Decentralized Natural Resources Management (DeNRM)
around the key concept of Community Based Natural Resource Management (CBNRM).
The project has developed result areas and its approach to reach these objectives in
the form of a Theory of Change for each of the result areas, which are visualized
hereunder. In this chapter, the team has assessed the roles and responsibilities of the
relevant actors and emerging issues against these result areas. In the next chapters (4
to 6), the actors will be assessed within their organizational context and possible
capacity building approaches discussed.
3.1. Result area 1: User rights obtained
Key resource users (wildlife, forest, fisheries & land) obtain user rights and are
organized to manage their resource based on wise principles within the framework of
Community Based Natural Resource Management. The strategy to attain this result is
visualised below in figure XXX, describing the impact drivers, the intermediate
outcomes, the assumptions and the interconnection with the other result areas.
Figure 3: Theory of Change for result area 1
17
3.1.1. Actors, their roles and responsibilities
In order to address this result area it is important to know who are the actors
responsible for the smooth implementation of the CBNRM establishment and what are
their roles. Based on the exercises with the DFT and LGA staff during the field visit
workshops in the three districts, the team has been able to establish the following
roles per actor per result area.
Table 4: Actors roles and responsibilities in result area 1
Actor
Roles and responsibilities
Villagers:
Village
Assembly, 
Define community and development priorities
especially the village chairperson 
Establish VEC/VNRC committee
and the sub village leaders

Participate in the 6 legal steps

Indicate boundaries of village land

Develop land use plan

Develop management plan

Draft by-laws

Approve revenue and expenditure

Submit all to the WEO

Correction of plans and by-laws on return from district

Approve VLUP and CBNRM

Approve by-laws
Village standing committees, VLUP, 
Protection of the land and the CBNRM unit
VGS, VEMP, VLC,
Excluding wrongdoers
CBO
member 
(WMA), VNRC chairperson

Resisting corruption

Benefit sharing

Financial management

Secretary of the village assembly

Financial management of village development activities

Mobilise villagers and sub village members

Participate in 6 legal steps process

Monitor progress

Report on progress

Collect revenue
VEO
Village land council

WEO
Mediate in land conflicts

Monitor progress

Report on progress

Collect revenue
WDC

Scrutinize by-laws
Ward tribunal

Mediate in land and domestic conflicts and reference to
primary court at district level
DFT:
DFO,
DFsO,
DGO,
DLO, 
Initiate the CBNRM process to the village communities
DALDO, Dlivestock, DCDO, town 
Include the budget for the support to the process into
planner, DLENRO, DEMO .
District Integrated Development Plan

Support villages in the 6 legal steps
18

Support to develop land use plan

Support to develop management plan

Support to draft by-laws
District Advisory Board (DNROB)

Coordination between departments, DEMO
DED, DHRO, DLPO and DT

Ensure staffing and budget for the implementation of
the support to the 6 steps

Ensure vision and strategy of CBNRM at district level

Coordinate between departments for CBNRM

Ensure adequate support to lower levels, such as
WEOs and VEOs
District lawyer

Scrutinize by-laws on overlap
Councilors and standing committees

Approval of by-laws
DC

Moral support to the process

Mediate in case of conflicts
RNRO, RLO, RAS, RC

Mediate in conflict situations
PMO-RALG/PO-PSM

Ensure sufficient staffing

Approval of positions for recruitment

Approval of replacement

Order the recruitment of staff to CG

Monitoring of the progress of the 6 steps

Ensure linkage between central government and local
government
MNRT (TFS and WD)

Support to RS and LGA staff

Policy, laws, regulations, formulation of Acts

Provide user right and the AA status

Law enforcement (KDU-Wildlife department)

Coordination
The assessment team has observed that not all the actors are aware or have an indepth understanding of their roles and also that not all the actors are fully committed
to play their roles.
3.1.2. Specific issues observed:
During the desk study, many issues have been identified, especially based on the
Baseline Study. However, it was important for the team to feel the reality, confirm
what are key issues in the process and to understand what can be possibly addressed
by capacity building and what are governance and policy or other problems. The
following issues have been confirmed, that need to be addressed to improve
performances related to the result areas.
Regarding the CBNRM process see table 5.
19
Table 5. CBNRM issues identified for result area 1:
General
VLUP
o Generally, each sector
WMA
o Generally,
knows its own 6 Steps
are
guidelines
guidelines
o Demarcating zones as
part
of
VLUP
is
understood
in
a
mechanical
way
but
management planning
for
each
individual
zone is lacking
o There
district
familiar
staff
o Although
WMA
with
started
many
and
years
procedures in all districts
o Updates of guidelines not
necessarily
widely
known
(different
applications
on
membership
in
VLUM
team, training to VLUM
is
no
documented
district
CBNRM vision in any of
the 3 districts
Team and time spent in
village)
o VLUP
documents
are
reasonable
of
a
quality,
in NRM, even in order
appropriate for making
to increase revenues
management
o Project
supported
actions take too long,
process
is
bureaucratic
between,
too
and
in-
follow
up
visits are too far apart
o VGS training needs to
expanded
recruits
some
to
and
refresher
new
even
for
plans,
started
DANIDA
projects
or
interest,
not
funded
investor
part
of
district strategy
o Efforts
involve
are
made
majority
dispute
to
enforce
o Although
boundary
with
villagers is the
biggest
PFM
source
of conflict in the
during
floodplain area
support
from
Underlying tension
still incomplete in
management
blocked the WMA
between individual
Kilombero
according to the
process
versus communal
Reserve
has
in
Rufiji

interest
District
support
from
national
level
to
establish the entity
o Evacuations
of
encroachers
have
effective
2004-2012 o
Ramsar
o Capacity sufficient
amongst
DFT
No
principles
to
is
support villages to
taking
produce
just
protection-
reassert control
centered
of
PFM
place,
trying
the
to
KGCA
management
boundary
plans, problem is o
The
business planning
Ramsar Site is
Kilombero
more
o Enforcement of by-
than
laws is difficult due
7,000
the police and the
to
only 500 km2 of
courts
interests in Rufiji,
Iluma
WMA
insufficient support
being
patrolled
of legal structures
and managed
structures such as
Donor
The
of
by-laws
with Selous Game
support from legal
of
Forest o
Rufiji District
to
in
all
community
WEO
dispute
1
Officer
for the VEO and
o Boundary
KGCA
incentive for local
districts
lacked
part
o Only
There is no clear
start up BMU, nor
coordinates and areas of
o VLUP is only done as

still
maps are useful, include
zones
PFM
incomplete in all 3
o Inadequate
reviewed
o Little funds reinvested
ago
BMU
in
Ulanga
(Iluma WMA)
individual
elsewhere
to
(Kilombero
of
Ulanga).
o
and
km2
but
is
Cooperation
between
KGCA
the
Manager
20
existing personnel
villagers through the use
and
of
chairs,
KILORWEMP
mounted
stakeholders
sub-village
loudspeakers
the
is
on bicycles/motorcycles,
good but mainly
drums to alert remote
informal
residents
of
VLUP
o
The
KGCA
meetings, include sub-
Manager
village
uncomfortable
residents
on
is
VLUM Team. However,
being
difficulties
facilitator and a
in
involving
marginal
groups,
especially
immigrant
pastoralist
(probably
both
controller
o
Fishers
turned
into enemies of
o Enforcement of VLUP is
the Ramsar Site
difficult due to outside
by
interference,
handed
political
opportunism
enforcement
are
being
resident pastoralist also)
o VLUP
a
heavy
patrolling
is
ineffective because Legal
tactics
o
In
Ulanga
Officers are involved at
wherever there
too late a stage
is
o Compensation
of
agreement
with KGCA over
villagers after VLUP is
the
difficult where there are
there is willing
border,
no funds (e.g Kibegere
participation
Village in Kilombero)
CBNRM,
in
particularly with
WMA and BMU
initiatives.
21
Regarding governance issues the team identified the following issues:

The ownership of the process is with the DFT (and not with community), which
undermines continuity and sustainability.

Villagers are involved in the process but not really trained and even less
empowered.

The participation of the majority of villagers in the process is not always
ensured, especially the participation of livestock holders is rarely ensured,
which leads to problems in the acknowledgement of grazing lands.

The multitude of committees, such as Village Natural Resource Committee
(VNRC), Village Environmental Committee (VEC), Village Environmental and
Natural Resource Committee (VENRC), Village Land Use Planning Team (VLUP),
Village
Land
Use
Management
Committee
(VLUMC),
Community
Based
Organization (CBO) and the Authorized Association (AA) at village level
confuses the communities.
o
It is not clear for the villagers how the committees relate to each other, eg.
VEC/VNRC/VENRC, VLUM, etc. and what the specific roles and responsibilities
are. For example, what is the role of the VNRC in PFM, is it a standing
committee or just a CBO? Another example: It is not clear whether the VLUM
Team is permanent, hence a standing committee, or just for the period of land
use planning?

The committees are not empowered enough to claim their rights, when it comes
to directives from above, eg. pastoralists, boundary setting, overruling of
village plans by investors, as well as the interference of Park Officials on village
land, etc.

The documentation, records and maps are not well organized and kept, which
leads to misunderstandings regarding the boundaries or issues such as buffer
zones, etc.
3.2. Result area 2:
Key resource users, transformers and traders (wildlife, forest, fisheries) organized to
derive sustainable economic benefits from Community Based Natural Resources
Management through access to markets and sound business management.
22
Figure 4: Theory of Change for result area 2
3.2.1. Actors, their roles and responsibilities
In this result area, the new concepts of communities doing business, value chains and
marketing are coming in. Many different actors will be involved that are not currently
known yet. The value chains of the following products need to be assessed and further
developed to identify the actors in each of the following value chains:

Charcoal

Timber

Honey

Trophy hunting

Photography tourism

Fish
Some of these actors will need to be involved in dialogue platforms between
government and communities to negotiate contracts, to solve issues regarding rules an
regulations, investments, etc.
Nevertheless, the following actors can already be identified at LGA and community
level.
23
Table 6: Actors, roles and responsibilities for result area 2
Actor
Roles and responsibilities
CBO for WMA

Protection of natural resources
VEC/VNRC for PFM

Development of harvesting plans

Procurement of business services

Business contract management

Management of revenues

Benefit sharing
CFMU for BMU
Village government (including Village 
Management of benefit sharing
standing committees)

Develop community development plans

Approve budget of CBO

Adherence to Fair trade

Adherence to by-laws and regulations

Refrain from corruption

Revenue collection
Traders and transporters
VEOs and WEOs
DFT: DFO, DFsO, DGO, trade officer, 
Creating enabling business environment
cooperative officer, DCDO.

Preparation of business strategy

Understanding the value chains needs

Providing for required infrastructure

Facilitating dialogue between value chain actors

Provide link to business community

Provide skills

Negotiate for contracts

Link with financial institutions

Revenue collection

Use revenue for reinvestment into NRM

Create enabling business environment

Provide infrastructure for business

Create dialogue platform

Define the optimal regulations for taxation versus
Cooperative Officer
DED, DLPO and DT
business attraction
Councilors and standing committees

Supporting
the
business
mechanism
in
priority
setting
DC

Refrain from political interference

Facilitate Business Council
RAS, RC

Conflict management
MNRT (TFS and WD)

Develop strategy and guidelines for harvesting plans
and business development
NMB bank

Provide
for
seed
money
to
enable
the
committees/CBOs to do assessments and prepare
the plans.
24
3.2.2. Specific issues observed:
Some issues need to be addressed before the project can engage in capacity building,
because this result area has hardly been addressed yet at the central or district level.
For example, there are no detailed guidelines or capacity (at any level) on stock
assessments, harvesting, business plans, contract negotiations, processing, financing.
The bottleneck seems to be at the national level, while it is not clear what is really the
reason for blocking the process. One possible reason might be the fact that it is
currently not clear where CBNRM should be rooted, in the agencies such as Tanzania
Forest Service (TFS) and Tanzania Wildlife Agency (TAWA) or under the Community
Based Conservation (CBC) Unit of the Ministry it self. As a result the districts are also
not guided, lack the required business oriented mind set and have no clear directions
on how to address this part of the CBNRM approach and therefore are struggling to
implement this national policy.
Table 7. Issues related to result area 2
Management
WMA
PFM
BMU
plans
General
No detailed guidelines or
No detailed guidelines or
No detailed guidelines or
capacity
capacity
capacity
on
stock
on
stock
on
stock
assessments, harvesting,
assessments, harvesting,
assessments, harvesting,
business plans, contract
business plans, contract
business plans, contract
negotiations, processing,
negotiations, processing,
negotiations, processing,
financing
financing
financing
Surveillance
Low
(patrolling)
communities
the
motivation
to
process,
approval
since
for
community
of
pursue
use
of
no
Low
motivation
communities
the
to
process,
the
approval
the
community
since
for
use
of
pursue
no
the
of
conflict
over
individual
versus
communal
benefits
the
Natural Resources after
Natural Resources after
many years
many years
Census/harvesti
Feasibility
study
is
Communities
ng plan
conducted
late
in
able to pay for these
Institutes
studies.
TAWIRI, etc.) to conduct
process.
Depend
Institutes
on
are
There is an underlying
not
Depend
the
Research
on
stock
Research
(TAFIRI,
assessment
and resource valuation,
(TAFIRI,
which is costly.
TAWIRI, etc.) to conduct
the stock assessment and
resource valuation, which
is costly.
Resource
local
management
leaders completely lack
communities
leaders completely lack
leaders completely lack
the knowledge and skills
the knowledge and skills
the knowledge and skills
for
for
for
negotiation
and
and
local
communities
negotiation
and
and
local
communities
negotiation
and
and
25
Mitigating
pressure
(fire
and poaching)
contract management
contract management
Communities and district
Communities and district
staff
staff
are
unable
both
are
unable
contract management
both
technically and socially to
technically and socially to
deal with wild fires and
deal with wild fires and
illegal off take.
illegal off take.
Community
CBO
do
not
gain
development
income during the set up
income during the set up
of the units, while there
of the units, while there
are costs to go through
are costs to go through
the processes
the processes
Contracts are
any
not
well
understood
Value
CBO do
not gain any
Contracts are not well
understood
added
economy
:
development
o Creating
:
an
enabling
o Creating
an
:
enabling o Creating
an
enabling
business environment,
business environment
business environment,
o revenue enhancement,
o revenue enhancement
o revenue enhancement,
o conflict management,
o conflict management,
o conflict management,
o contract management,
o contract management,
o contract management,
o value
o value
chain
development,
chain o value
development,
chain
development,
o markets and
o markets and
o markets and
o business plans
o business plans
o business plans
LGAs
have
no
LGAs
have
no
LGAs
have
no
understanding of the link
understanding of the link
understanding of the link
between
between
between
activity,
economic
taxes
and
services at LGA level.
taxes
services at LGA level.
and
activity,
economic
taxes
and
services at LGA level.
Capacity
depends
on
depends entirely on the
development
support of the DFT for
support of the DFT for
stock
stock
M&E
entirely
activity,
economic
assessment,
the
assessment,
the
preparation of harvesting
preparation of harvesting
and management plans,
and management plans,
without them being well
without them being well
prepared to do so.
prepared to do so.
Ward level staff is used in
WEOs do not have
monitoring CBNRM, but
willingness to fine or
restrained resources
collect revenue of
already very poor people,
especially in the BMUs.
26
Governance issues are:

LGAs are not guided for developing strategies, understanding and skills
regarding creating an enabling business environment, revenue collection,
conflict management, contract management, value chain, markets and business
plans

In addition, the LGAs have no understanding of the link between economic
activity, taxes and services at LGA level.

Most DFT are graduates posted in Ulanga, Kilombero and Rufiji as their first
posting, therefore, lacking in practical experience.
3.3. Result area 3:
Strengthened capacities of central, regional and local government structures to
support and monitor the implementation of policies at local level and improved
coordination between Natural Resource governance stakeholders at all relevant levels.
Figure 5: Theory of Change for result area 3
27
3.3.1. Actors, their roles and responsibilities
This result area involves actors involved in the horizontal and vertical linkages between
the different levels as well as accountability, coordination, collaboration, and
interaction between the stakeholders.
Table 8: Actors, roles and responsibilities for result area 3
Actor
Roles and responsibilities
Village Assembly, especially the village 
Mobilization of community
chairperson and the sub village leaders
Coordination
Village
standing
committees,

VLUM, 
VGS, CBO, VNRC/VEC,
Regular meetings to address concerns

Feedback to their constituencies

Monitoring of progress

Secretary of the committees and village council

Interconnect between the different levels
Village land council

Conflict mediation
WEO

Mobilization of communities
WDC

Ensure integrated development

Prioritize development activities

Conflict mediation

Reference to primary court
Division

Conflict management
DFT:

Planning of NRM
DFO,
DALDO, 
planner, 
VEO
Ward tribunal
DFsO,
Dlivestock,
DGO,
DCDO,
DLO,
town
Facilitation CBNRM
M&E
DLENRO, DEMO

District Advisory Board (DNROB)
Only for WMA
DED, DHRO, DLPO and DT
Councilors and standing committees
Provide access to information

Share experiences

Address issues

Coordination

Include NRM into planning and budget

Know
their
role
on
CBNRM
both
regarding
support to protection and conservation as to
business development
DAS

Supports
the
DC
in
monitoring
of
district
development
DC

Responsible for the general security situation in
the district
District NGO network and CSOs

Ensures enforcement of the law

Conflict management

Provide access to information to the communities

Create space for communities to express their
28
concerns and needs

Create dialogue platforms with LGAs and also
with market actors in the value chains

Ensure involvement of communities in influencing
decision making at LGA level

Empower communities to claim their rights

Social accountability monitoring in the area of
CBNRM
RAS, RC, AAS Economic and Productive

Provide services to the communities

Coordinate between CSOs and LGAs

Advocacy for community issues to LGAs

Sectors
Ensure functionality of management systems at
LGA level (financial, HR, planning, budgeting,
procurement, M&E, etc.)
RNRO, RLO,
Regional NGO network and CSOs

M&E

Conflict management

Interlink district level issues to national level
advocacy

Support the district networks in their role to
support lower levels
PMO-RALG/PO-PSM

Organize dialogue platforms at regional level

Ensure staffing and performance measurement

Ensure functionality of management systems
(financial, HR, planning, budgeting, procurement,
M&E, etc.)
MNRT (TFS and WD)
MoL, Commissioner of Land
Ministry of Livestock and Fishery

Policy formulation and harmonization

Coordination

M&E

Processing of requests for certificates

Collaboration

Rangeland policy
3.3.2. Specific issues observed:
These issues are mostly related to policy or governance problems, which will be hard
to address with capacity building interventions. However, they need to be addressed in
order to allow capacity building to be effective.
29
Table 9: Issues related to result area 3
Vision
and
strategy
Horizontal
Vertical
Stakeholder
Social
Laws
Enforcement
linkages
linkages
collaboration
Accountability
mechanisms
and dialogue
There is a lack of
Ministry of Livestock
No
CBNRM
and
mainstreaming
in
the
visioning
3
district
councils
Fisheries
Development
absent
is
from
good
the
of
programs
downwards
and
supporting BMUs in
also bad reporting
the inland fisheries
upwards
Programs are not
Coordination
The
really
integrated
between
within
the
government
system,
projects.
sectors
NRM
is
project driven
mainly
mainly
top
approach
down
within
No
dialogue
To
get
access
to
Absence
of
impartial
between
information
the
mechanism to claim rights
communities
communities
are
or to mediate in the case of
and LGAs
entirely
dependent
conflicts.
on the DFT.
No
DFT not necessarily
No mechanism or power to
pressurize
institutionalize
have
government is not
d
for
and competency to
government to respect the
conducive for the
the
business
empower lower level
existing land use plans when
participation of the
community to
officials
imposing
communities which
dialogue
villagers.
leads to conflicts in
government
space
with
commitment,
and
the
central
new
acts
or
sending directives to lower
levels
the end
Weak civil society at
Many conflicts result from
low level to organize
boundary disputes between
and
protected
empower
the
areas
and
the
communities and to
communities,
between
negotiate with local
villagers
and
government.
between
investors/RUBADA
pastoralists,
and villagers, where maps
play
crucial
role
in
determining final boundary.
30
3.4. Focus of capacity building interventions in response to identified
performance gaps
Result area 1:
In order to address these issues, the project can use a number of capacity building
strategies. The focus of the CB can be summarized as follows:
In case of the 6 legal steps (RA 1), the emphasis should be on the strengthening and
empowerment of the lower levels. This includes the strengthening of the village
committees and leaders, ward level leaders and ward extension staff as well as the
councilors at district level regarding the process and the guidelines. The strengthening
can be effectuated by training these actors on CBNRM guidelines, by-laws drafting,
document management from the start and by providing hard copies of relevant
documents such as guidelines in Kiswahili. Secondly, the district officials need to
change their attitude and mindset in their support to the lower levels: the DFT officials
are supposed to provide the technical expertise to establish the CBNRM, but even more
to mentor and coach the lower level actors to take over the roles and responsibilities to
manage the CBNRM as opposed to do most of the work themselves. The purpose is to
create more ownership and control over the land use and management plans as well
as to empower the villages to stand up against external forces, such as invading park
patrols, investors, immigrant pastoralists and to enable them to implement their land
use plans.
In previous paragraphs, the key performance gaps have been identified per result
area. In order to address these gaps, there is need to build capacity of the relevant
actors. These capacity targets have been identified in the following table together with
possible indicators for capacity improvements.
Result area 2:
The communities are entirely depending on the DFT for this part of the process and
need to be empowered to find the proper support in this process. This is first priority
and should be enhanced through the involvement of civil society and eventually private
sector (see chapter 7). One of the focus areas for the project should be to create space
for the communities to sit at the negotiation table with traders and transporters or
other business men/women while being professionally advised.
Second priority is on LGA’s capacity to provide an enabling environment for businesses
in general, and for CBNRM product developers in particular. There does not seem to be
a strategy, guidelines, instructions or any support for LGAs on how to tackle this,
which is a big obstacle. The project can contribute to this result area in collaboration
with others, such as the scholarship program or other donors and civil society.
Especially the trade and cooperative officer, as well as community development officer
need to be capacitated (VICOBA’s).
31
On the other hand, the district management, with the DT and councilors in the lead,
needs to be introduced to a shift in mindset regarding the creation of an enabling
environment and the link between economic activities, taxes and services. First of all
NRM can provide for a considerable amount of revenue, once it has acquired the
certificates and approvals to start using the products. Therefore, it is in the interest of
the council to smoothly and swiftly facilitates that process. However, once the NRMs
are generating income, the council needs to re-invest part of that revenue back into
the NRM sector to make it sustainable.
Hick-ups in the market chain need to be addressed through a joint approach with
sellers, transporters, processors and buyers to be facilitated by the DC (Business
Council, including TCCIA and Trade officer).
The project could develop a mechanism where communities get access to the relevant
links on market information through mobile phone system, and also develop
framework per commodity on what is mainstream and where to find the expertise. It
should be explored what is the most reliable information regarding markets and how
the villagers can be linked to that information.
Result area 3:
In this result area the Civil Society needs to start playing a more prominent role.
However, the locally based CSOs are all still rather weak and need substantial capacity
building support. At the same time, one can see that there is possible interconnection
between communities and the national level via the different levels of NGOs and
networks present, which is an encouraging situation. In the case of Kilombero and
Ulanga, a chain of networks linking community CBOs to national level advocacy
membership organizations. For example the CBO SEGTO, based in Ulanga, is
supported by and linked to the district network UNGOU in Ulanga, which is linked to
the regional network UNGO in Morogoro, which is linked to the advocacy network
Policy Forum at national level.
Based on the above-described findings, the team has formulated transition states that
are required to address the performance gaps for each result area. Transition states
can be considered as milestones/markers of progress/stepping stones that are needed
to reach the intermediate states and ultimately the result area objectives. The
transition states have been the starting point to identify the capacity issues and the
capacity targets to reach those states. This sequence and line of thinking has been
presented in table 11.
32
Table 10: Overview transitions required and capacity building targeted per result area
Result area
Intermediate states
Indicators
CBNRM:
Key CBOs established
No
user
rights
obtained
of
WMA,
structures in place and
BMU,
functioning
and registered
with
LUP
CBFM,


and accountability while
established
compliance increases.
CBFM, BMU, LUPs
of
WMA,

CG
conflicts
improved

mitigate
and

of CBO.
slows
degradation
and
conflicts
between
then

recovers
of
ensure
farmers,
LGAs
and
leadership
to
participation
pastoralists and CBNRM units
Increased confidence and initiative of
population
village leadership and committees to
participation of the process
act in the interest and on behalf of
from the start.

Increased
recognition
of
The
multitude
of
and
of
minority
relevant
in
the
capacity of LGAs to involve
pastoralists
collective
in
the
VLUP
process
responsibility for own resources
support
performance
Resource
Less
capacity
community
their constituencies
responses and provide
capacity,
Increased ownership of process by
communities

Effectiveness
facilitate
Targeted capacity building
gazetted
increased transparency
LGAs
Transition required
committees
is

capacity of LGAs to empower
reduced at village level and clear
(inform,
between
them) and devolve powers to
members
on
roles
and
train
coach
responsibilities
WEOs,
The documentation, records and maps
leaders to play their roles
are well organized and kept, which

VEOs
and
and
local
capacity of LGAs to have
leads to reduced misunderstandings
harmonized approach on the
regarding the boundaries or issues
creation of committees and
related to buffer zones, etc.
explain
the
difference
between them

capacity
district
of
and
village,
regional
ward,
level
officials to document, record,
store,
share
and
manage
information
CBNRM
CBOs
are
working
in
a
transparent
way
and
Compliance
with
CBNRM by laws (LUP,

The community members are better
informed
and
therefore will
adhere to by-laws
better

capacity
councillors
of
WEOs,
VEOs,
and
village
leaders to share information
33
accountable
to
constituencies
compliance
their
while
with
by-
CBFM, WMA, BMU)
Gender
ratio
directory/board

in
of
laws increases.
each
Gender balance in CBO
committee supported

CBO/village

Women’s needs for natural resources
with
are respected
exchange between villages
Improved access to information from

Networking among local
The gained trust between CSOs and
participation
National
level
decision
making
of
women
in
decision making bodies
is

empowerment
organization
and
of
CBOs
and
CSOs
and between these and

regional/national
interconnection between the
networks at different levels
actors’ increases.

LGAs mitigate conflicts
interaction
between
LGAs
and Civil Society
and support improved

performance of CBOs
recovery
capacity of DFT, and village
leaders to ensure effective
timely responding to local level issues
actors (CBOs, villages)
and
LGAs to CSOs and vice versa
LGAs facilitates progress of activities
governance improves.
Natural

constituencies
capacity of LGAs, councillors
and CSOs to motivate youth
Resources
and communities to preserve
gains
the environment and natural
momentum
resources
Derive
Communities with LGA
Amount of revenues 
Clear strategies, road maps, guidelines 
capacity of Wildlife Division,
benefits
support
through
generated
and manuals are developed for the
Forestry
from NR
partnerships
develop
CBO/CBNRM
different levels in appropriate language
division,
and
by
and
tangible and legitimate
initiatives via business 
Value chains and market dynamics are
department
income streams CBNRM
plans
clear
detailed
related
via
contracts
No
of
contracts
and
therefore
accessible
for
beekeeping
and
Fishery
to
develop
guidelines showing
anchoring for the communities
the roadmap/steps on how to
and improved access to
entered into between 
The communities are motivated to
prepare
markets
CBOs
invest
plans and how to address
and/or
and
buyers
financial
services/capital


and
progress
in
the
the
establishment of the CBNRM units
business,
Decision making for the harvesting
development
plans is based on sound data
products
Quality management plans lead to 
capacity
management
market
of
of
the
Ministries
NR
to
34



more successful businesses
facilitate the legalization of
Reduced conflicts between investors
the
and communities
approve the permits timely
The revenue of the communities as 
capacity of service providers
well as the district increases
such
More reinvestment in the (sub) sectors
UDSM or others to conduct
leads to better services and increased
stock/resource assessments,
revenue to the communities and the
district
CBNRM
as
process
TAFIRI,
and
TAWIRI,
and feasibility studies

capacity
of
prepare
the
DFT
harvesting
to
and
management plans and other
elements
required
for
the
preparation of the approval
for NR exploitation

capacity of local communities
and
leaders
knowledge
in
terms
and
negotiation
skills
and
of
for
contract
management.

capacity of CMT to create
enabling
business
environment and understand
value chains

capacity
understand
of
LGAs
the
mechanisms
implications
to
economic
and
of
the
revenue
collection

understanding by LGAs of the
link
between
economic
35
activity, taxes and services at
LGA level.
Communities are benefitting from the 
capacity of CBOs to negotiate
revenues shared with
development activities funded by the
benefit sharing with LGAs.
generation of revenue through CBNRM
CBNRM CBOs distribute
Percentage
tangible
benefits
to
members
through
members
effective
financial
invested
governance
of 
and/or
in
related
CBO 
enterprises
Financial
reports
presentation
and/or services


and
enhances

capacity of CBO, VEO, and
transparent
village
trust
financial
and
committees
management
in
and
credibility
governance.
Introduction of VICOBAs reduces the 
capacity of communities to
incidences for illegal practices
address community benefits
The timely return of community money
versus
allows the CBOs to better protect its
through the introduction of
individual
benefits
VICOBAs
WMA and reinvest in the business

capacity of Ministry to timely
send
back
the
community
money collected from CBNRM
Governance
Central, regional, local
IMP
and
government authorities
implemented
harmonizati
and
monitored
on
participate and support
stakeholders
effectively 
and
management
local
and
Capacity of MNRT Units to
capacity of the LGAs to develop local
create ownership of national
plans
level Ministries to implement
CBNRM
processes of adaptive
NR
Clear CBNRM strategy enhances the 

at
landscape
scales
The integration of CBNRM strategy into 
capacity
the district plan provides for more
district level NR related staff
resources
to
and
increases
possible
plans
monitored,
scaled
financed
and
comprehensive
are
provide for evidence of results and
level (MNRT and MoLF) to
adapted,
economic value and feed into decision
develop
by
and
LGA,
reliable
Increased capacity of national
More
up
and
data 
and 
systems
consistent
develop
regional
strategy
sustainability
CBNRM
of
M&E
system
that
cuts across all levels
making

Increased capacity of PMO-
36
MNRT, PMO-RALG
RALG, regional and district
level
to
implement
M&E
system
KGCA
is
effectively
managed
on

the
principle of wise use
Clarity on the use, management and

Increased
community involvement of the KGCA
Ministry
leads to protection of the biodiversity
settlement
capacity
to
of
the
negotiate
based
a
on
consensus and compensation
and/or
resettlement
(e.g.
shareholding) with the local
communities
Stakeholder’s
views

taken into account in
decisions
More
frequent
landscape resources
between

DC/DED
understanding and acceptation of the
dialogue
different
organize
allows
positions,
for
which
leads
to
Inclusion
of
the
capacity
to
create
a
platform
of
NRM
and
stakeholder
meetings
readiness for consensus

Increased
mutual
stakeholders
on
interaction
voice
of
the

Increased
capacity
of
the
CSOs to claim their right to
communities leads to less conflicts
be
involved
in
decision-
making on behalf of their
constituencies
record, share and manage
and
increased
the
boundaries, roles and responsibilities,
information
and
rules and regulations as well as rights, 
Increased
which in the end leads to consensus
CMT
and development
wetland
development
processes
understanding
allows
the
information
on
information
Increased capacity of LGAs to
Access
knowledge
to
for 
Stakeholder access to 
of
capacity
of
the
to
collect, store
and
manage
information
at
district level

Increased
capacity
of
the
CSOs to claim their right for
information
37
A stronger civil society becomes a 
Increase capacity of the CSOs
more equal partner in the dialogue
to
at local and landscape
with
evidence- based information
levels.
benefit of the communities
Stakeholder
networking

increased
government
in
favor/for
the
and
get
to
organized,
develop
campaigns
to
collect
advocacy
address
communities’ needs.
38
4. Institutional level: MNRT and Regional Secretariat
4.1. Structure of MNRT
The Ministry of Natural Resource Management (MNRT) is currently made up of 3
separate divisions, 3 agencies, and 2 research institutes. Each division possesses its
own policies, legislation and regulations. The divisions are Wildlife, Tourism and
Antiquities, whereas the agencies include the Tanzania Tree Seed Agency, the
Tanzania Forest Services Agency (TFS) and the parastatal agency Tanzania National
Parks (TANAPA).
The Ministry of Natural Resources and Tourism (MNRT) will be overall responsible for
project coordination, which is delegated at the level of Wildlife Division.
The Wildlife Division (WD) is responsible for the management of Game Reserves
(GRs), Game Controlled Areas (GCAs) and all wildlife outside protected area
boundaries and Wetlands. Also the WD facilitates the establishment of Wildlife
Management Areas (WMAs), creates awareness and disseminates information about
wildlife management to the village communities on their village lands.
The Wildlife Division is headed by the Director of Wildlife who is responsible for overall
management of the division. The director coordinates Assistant Directors and heads of
sections as part of the division’s management structure. The Wildlife Divisions Sections
include, Wildlife Development; Research, Training and Statistics; Wildlife Utilization;
and Anti-Poaching/Law Enforcement. The director leads the tasks of planning,
budgeting and monitoring of the wildlife component of the overall ministry’s strategic
plan.
Wildlife utilization
The Wildlife Utilization Section is headed by an assistant director with senior
management responsibilities. This section is responsible for allocation of hunting blocks
and preparing the fee structure for the different licenses and permits. The allocation of
hunting blocks is carried out centrally nationwide, including in game controlled areas
and WMAs.
Anti-poaching
The Anti-Poaching Sections is headed by an assistant director and is responsible for
monitoring compliance and enforcement of the wildlife legislation. The Section is
assisted by Anti-Poaching Units, which are mobile and placed in zones distributed
throughout the country. The Anti-Poaching Unit
Research, Training and Statistics
Training of WD staff is coordinated and monitored by this section, which is made up of
an assistant director. This section does not monitor or collect field data but it does
participate in the analysis of this data, which is provided by the Wildlife Development
Section and the Anti-Poaching Sections.
Wildlife Development:
The Wildlife Development Section is headed by an Assistant Director who is part of the
senior management in WD. The Wildlife Development Section is the largest in WD, with
responsibilities for promoting community based conservation, wetlands management ,
monitoring implementation of CITES, the Ramsar Convention and donor funded
projects such as KILORWEMP. The units under the Wildlife Development Section
include Community Based Conservation (CBC); Wetlands Management; Environment
and Protected Areas (PA); Program me Coordination (PC); and Conservation Education
and Publicity. All Game Reserve and Ramsar Site Managers in the country report on
progress to the Wildlife Development Section, making it one of the sections with
primary monitoring responsibilities. The Section is represented by many young officers
who complain of not having been supported by the WD training plan, which favors
senior staff over actual requirements based on a development plan.
Table 11: List of responsibilities and staffing levels of Units under the Wildlife Development
Section of the Wildlife Division
Units and their responsibilities
Staffing
Education
4 total staff;
2 M.Sc.
To integrate donor programs into
1 Principle Game
2 B.Sc.
development programs in the Wildlife
Officer
Division;
3 Game Officers
Conservation Education and Publicity:
-
To coordinate implementation of wildlife
sector promotional programs;
-
To develop education materials for
schools and colleges and develop wildlife
conservation materials for the public.
Program Coordination:
-
-
To prepare plans and budgets for the
Division and coordinate donor supported
programs;
-
To monitor and evaluate performance of
projects and programs.
Environment and Protected Areas Development:
-
3 Total Staff:
1 M.Sc.
To prepare and revise Game Reserves
1 Principle Game
1 B.Sc.
General Management Plans (GMP);
Officer
1 Diploma
To
supervise
environmental
issues
2 Game Officers
40
including monitoring of EIA process within
the WD mandate;
-
To oversee establishment and degazettement of Protected Areas (PA).
Community Based Conservation:
-
6 Total Staff;
To coordinate establishment and
1 M.Sc.
5 B.Sc.
management of WMA and to oversee
investments;
-
To facilitate capacity building of WMA
actors to deal with problem animals and
anti-poaching operations;
-
To administer cost and benefit sharing
schemes in WMAs.
Wetlands Management:
-
To coordinate wetlands activities by
4 Total Staff:
3 M.Sc.
1 B.Sc.
managing a wetland database;
-
To inventory and classify wetlands and
supervise the preparation of their
integrate management plans;
-
To undertake valuation of wetlands.
The Community Based Conservation Unit is within the Wildlife Development
Section. The CBC Unit is made up of 6 officers, one of whom is studying at the M. Sc.
level. 2 of the 6 officers are directly involved in the advancement of the WMA program.
One of the unit’s officers has now been officially appointed to deal with boundary
conflicts, however, there is some considerable overlap between CBC and the division’s
Protected Areas Unit on the issue of resolving boundary disputes. There is widespread
dissatisfaction throughout the Wildlife Development Section with the divisions training
plan, which is felt to favour seniority over actual requirements. Most of the staff of the
CBC has attended short courses but mainly through their own efforts and not through
the division’s plan. CBC has benefited in its relationship with the donor supported WMA
process in the country. The unit’s staff has received much on the job training in
addition to attending many seminars and workshops. Furthermore, the WMA process
has developed a WMA Implementation Strategy for 2013 – 2019, with support from
WWF and funding from USAID. The strategy itself is still in a draft form and lacks
detailed analysis and plans but it does offer a first attempt at preparing a systematic
development program for a WD activity. Despite the unit’s responsibilities including
overseeing investments in WMAs and administering cost benefit sharing schemes, its
staff do not see themselves as being responsible for promoting or marketing WMAs.
Instead they see the role of business development in the WMAs to be a responsibility
of the fragile AA Consortium. CBC staff does advise the Wildlife Director on WMA plans,
which WD approves. As a result the staff recommends being trained on GIS and
remote sensing in order to better analyze resource zone assessments. They also
41
require capacity building on contract negotiations if they are required to oversee WMA
investments.
The Wetlands Management Unit is staffed by four officers, only one of whom is
currently active. The Wetlands Unit’s other officers include one who is pursuing further
studies, one who is on maternity leave, and another who is currently assigned to the
KILORWEMP project as the Project Manager. The Wetlands Unit is responsible for
monitoring the nations 4 Ramsar Sites and for advancing a wetlands program. Three of
the WU staff possesses post graduate degrees at the M.Sc. level. Two of the post
graduate degrees are in wetlands limnology obtained in The Netherlands and the other
in integrated environmental management from the University of Dar-es-Salaam. The
Fragmentation in WU is caused by the fact that they do not sit together in a single
consolidated office. WU is also represented by officers located at each of the nations 4
Ramsar Sites. The Ramsar Manager in Kilombero has a B.Sc. degree in Wildlife
Management from SUA but otherwise has never attended a wetlands course. WU are
responsible for the inventorying and classification of the nation’s wetlands into a
database, an activity which has been recommended to be implemented specifically in
the Kilombero Valley as part of a PhD. project for one of the staff. Arguably the biggest
challenges to the WU are the low priority given to wetlands by the division because
they are non-revenue generating, difficulties in coordinating wetlands stakeholders
across different sectors and institutional structures, and competition in drafting
wetlands regulations between WD and VPO. A recommended activity meant to reduce
these challenges is to hold awareness raising and educational retreats with
stakeholders and decision makers in the Ramsar Sites.
Environment and Protected Areas Development Unit is staffed by just 3 officers.
Relative to other units it is only modestly qualified educationally, with only the head of
unit having a post graduate degree. One of the unit’s officers has been attached to an
ongoing exercise to assess the viability of Game Controlled Areas. The unit’s degree
holder is experienced having participated in aerial surveys of the Kilombero Valley
during the cattle evacuation in 2012. In addition to the B.Sc. in Wildlife Science and
Conservation from UDSM, this officer has also attended short courses on integrated
ecosystem management in Malaysia and Community Based Tourism in South Africa.
The unit is responsible for assessing GCAs and it can recommend a GCA to be
upgraded to game reserve status. The process of establishing a new protected area or,
upgrading an existing one, involves convening village meetings and collaborating with
staff at the district level. However, none of the unit’s staff are trained in facilitation,
conflict resolution, the relevant land laws or local government procedures. The unit’s
staff expresses a desire to have an in house GIS capacity with trained staff and
equipment. Currently, 2 officers in the Program me Coordination Unit, with some GIS
training are used by the entire WD to assist with mapping exercises in an unofficial
capacity. Officially maps are produced for the WD by TAWIRI.
42
4.2. Role of MNRT in CBNRM:
The Ministry of Natural Resources and Tourism plays a leading role in Natural
Resources Management, with the vision: To conserve natural and cultural resources for
the benefit of Tanzanian’s while leading in contribution to the economy”. The MNRT
Strategic Plan (2013-16) aims at “Sustainable conservation of natural and cultural
resources and development of tourism for the well-being of the nation”. The medium
term plan of the MNRT is to create a conducive environment for participation of
stakeholders
in
conservation
of
wildlife,
forestry
and
wetlands,
tourism
and
beekeeping, both inside and outside of protected areas. The plan addresses duplication
of efforts between local and central government levels, and aims at greater synergy
between sector policies.
4.2.1. Visioning CBNRM and the Landscape approach
There is a fundamental challenge in Tanzania when it comes to managing ecosystems
and landscapes. This is because Land Use Planning and Land Tenure are the
prerogative of villages and the central government. The central government itself has
land tenure and is allowed to implement land use planning only for reserved lands,
such as game reserves and forest reserves. The issue of water basins, wildlife corridors
and Ramsar Sites do not fit into any legal land planning framework. The Kilombero
Ramsar Site, although recognized by the Government of Tanzania, has no legal
mandate to plan land and its uses.
Without a landscape approach to land use planning it seems unavoidable that conflicts
will take place with pastoralists, fishers and wildlife conservationists. This is because all
of these groups depend on landscape for the resources on which they rely. Using
villages as the sole planning unit will not allow pasture, fish and wildlife to be managed
when they exist in areas greater than village or even district boundaries. The answer
seems to be a discussion and negotiation process across villages in a landscape.
4.2.2. Integrated CBNRM strategy at ministerial level:
The MNRT strategic plan is currently no more than a compilation of the individual
divisional plans rather than a holistic plan that attempts to synergize where there are
common elements across the divisions. Amongst the divisions, only forestry has
produced a development plan, called the National Forest and Beekeeping Programme.
The Wildlife Division does not possess a holistic development plan in the same way
that forestry has and as a result the intentions of the division are discerned from
different documents, including policy, legislation and regulations.
Exacerbating the lack of a single CBNRM vision within MNRT is the different rates at
which the divisions are implementing institutional reforms. Currently, the Wildlife
Division is preparing to launch the Tanzania Wildlife Agency (TAWA), which will be
responsible for managing government game reserves and game controlled areas and
may be based in Morogoro. There is some uncertainty as to which agency will be
43
responsible for advancing the WMA and Wetlands Management programmes once
TAWA has been launched.
4.2.3. Sustainable Wetland Management:
KILORWEMP intends to use the Sustainable Wetlands Management Program (SWMP)
Guidelines extensively in order to roll out the various elements of CBNRM within the
three districts of the project. SWMP was a Danida funded program that was based in
the Wildlife Division of MNRT with the aim of strengthening capacities to fulfill
obligations of wise use of wetlands as according to the Ramsar Site.
The SWMP guidelines are specific to CBNRM activities within wetland areas in Tanzania.
In other words community based activities such as forestry, wildlife management and
fisheries have been adapted to situations where wetlands make up a significant part of
the landscape. The SWM guidelines have been published over the period March 2012 –
May 2013 and were introduced to selected districts at Pasiansi Wildlife College in
Mwanza. Ulanga and Rufiji Districts each had one individual attending the Pasiansi
training session in 2013.
The guidelines, which are collectively referred to as the SWM Guidelines are listed
below in Table X. As can be seen, some of the guidelines have been developed
independently of the SWMP program. However, the list does include the complete list
of guidelines that would be required to undertake land use planning, forestry, wildlife
management and fisheries on village lands.
Table 12: List of Government of Tanzania Guidelines used in various CBNRM activities
s/n
Title of Guideline
Date of
Published by
Publication
Community Based Forest Management
April 2007
Forestry and Beekeeping
Guidelines: For the establishment of
Division – PFM
Village Land Forest Reserves and
Component
Community Forest Reserves
Guidelines for Participatory Forest
January
Forestry and Beekeeping
Resource Assessment and Management
2005
Division – PFM
Planning
User’s Guide to the AFM Tools
Component
June 2012
Participatory Forest
Management/
Sustainable Wetlands
Management
Programme
Administration and Financial
June 2012
Participatory Forest
44
Management Manual
Management/
Sustainable Wetlands
Management
Programme
National CEPA Resource Book for
March
Wildlife Division –
Sustainable Wetlands Management
2012
Sustainable Wetlands
Management
Programme
A Guide to Wetlands Friendly
April 2012
Wildlife Division –
Investments: Sustainable Fisheries
Sustainable Wetlands
Management in Wetlands
Management
Programme
A Guide to Wetlands Friendly
February
Wildlife Division –
Investments: Strategic Economic
2013
Sustainable Wetlands
Assessment of Wetlands
Management
Programme
A Guide to Wetlands Friendly
February
Wildlife Division –
Investments: Sustainable Wildlife
2013
Sustainable Wetlands
Management in Wetlands – WMA
Management
Training Manual and User’s Guide Part
Programme
One
A Guide to Wetlands Friendly
January
Wildlife Division –
Investments: Sustainable Wildlife
2013
Sustainable Wetlands
Management in Wetlands – WMA
Management
Training Manual and User’s Guide Part
Programme
Two
A Guide to Wetlands Friendly
May 2013
Wildlife Division –
Investments: Sustainable Irrigation
Sustainable Wetlands
Management in Wetlands
Management
Programme
A Guide to Wetlands Friendly
May 2013
Wildlife Division –
Investments: Sustainable Livestock
Sustainable Wetlands
Management in Wetlands
Management
Programme
Guidelines for Participatory Village Land
Use Planning, Administration and
Management in Tanzania. 2
nd
April 2013
National Land Use
Planning Commission
Edition
45
Relevance of the SWM Guidelines:
An in depth assessment of the SWMP Guidelines is beyond the scope of this exercise,
however, the capacity building implications of using the guidelines is appropriate and
will attempted here.
All the guidelines are firmly anchored in Tanzanian policies and legislation. The
underlying principle of the guidelines is the management of natural resources on
village lands. This approach stems from the Land Acts, particularly the Village Land
Act, and the Local Government and Miscellaneous Amendments Act. The institutional
arrangements referred to in the guidelines are therefore those same arrangements
that are defined in the various laws. The main approaches referred to in all of the
guidelines, namely participatory planning, market driven economics and decentralized
extension services, are rooted not only in the country’s laws but also in the most
strategic policy documents beginning with Vision 2025, MKUKUTA I and II and the
National Development Program.
The forestry guidelines in particular are developed directly from the legislation. There
are no CBFM regulations that further frame the law for use on village lands. In fact, in
forestry, the regulations that exist to manage trade in government reserves and open
lands are largely null and void in Village Lands Forests, Community Forests and Private
Forests. As a result the CBFM Guidelines are the first attempt to advise communities
on how to manage forest resources for their own benefit. This is true also for the
Village Land Use Planning Guidelines, which stem directly from the Village Land Act.
Guidelines for wildlife and fisheries in contrast have been developed directly from
sector regulations. The regulations, being detailed and prescriptive, have led to these
sets of guidelines being more explanatory regarding processes underlying the legal
framework. The SWMP Guidelines also exist for livestock and irrigation water
management in wetlands, thus making them the most comprehensive of the various
guidelines for CBNRM. All the same, the guidelines taken together, are a relevant and
useful tool in the process of building capacity to facilitate CBNRM.
Features of the SWM Guidelines:
The main feature of the SWMP Guidelines is that they are designed more as manuals
or toolkits then they are traditional guidelines. As a result these user guides are
comprehensive, extending to more than 50 pages in every case, and for two volumes
of 100 page each for the WMA User Guide. The content of the user guides is consistent
with descriptions of the legal and institutional setting followed by descriptions of the
specific resource and its status in Tanzania’s wetlands. The latter part of the user
guides then outline a process of developing management plans after a process of
identifying threats has been undertaken. It is important to note that the mitigation
46
actions section of the livestock and irrigation investments guidelines are less detailed
than for other natural resources.
The wildlife and fisheries guidelines go so far as to include tools towards the end of the
documents. These tools are in the form of checklists for fulfilling requirements of the
sector regulations. The fisheries guidelines include 30 tools, some corresponding to
application forms for certain licenses, and the WMA manual lists 23 tools and a 24 th
tool in 11 parts that extends for 100 pages. The land use and forestry guidelines are
less formulaic than the wetlands user guides. Nonetheless, these two sets of guidelines
are equally comprehensive resulting in a plan made in a participatory manner with
village by-laws to underpin the plans.
4.2.4. CBNRM policy issues:
Forestry

The Hammer
User rights in forestry are provided through issuing of an official hammer for
marking timber. In CBFM this process has been very slow, in that MNRT has not
issued more than 5 community hammers although there are more than 2,000
villages participating in PFM over the last 15 years. The issue has posed some
problems because MNRT has had misgivings about issuing so many hammers,
which could lead to poor monitoring of hammer use. The current solution is for
CBFM hammer to be issued to DFOs, who can more easily be monitored by TFS
but who acts on behalf of communities. Although this solution may practicable
in some cases, many districts are too big for it to be a useful solution in every
case. There needs to be a solution where large districts can decentralize
hammers to Forest Officer in more remote parts of the District. Otherwise,
some villages need to be able to qualify to have their own hammers through a
process that is transparent and objectively managed. This issue needs to be
addressed in order for marketing and contracting in CBFM to be streamlined. It
is doubtful that forest produce can be sold or that forest services can be
procured easily without the hammer issue being appropriately resolved. A
retreat involving TFS and PMORALG headquarters staff to the KILORWEMP area
could be used to bring the issue to the attention of policy makers.

Harmonization of Acts
One of the main policy failings in the current legislation is the lack of tenure of
villagers over their village land trees that are not contained within a Village
Land Forest Reserve. When combined with the conservation focus that many
DFOs used to facilitate PFM in the early stages, it has meant that villagers have
been reluctant to include many of their trees in a VLFR and thereby foregoing
potential revenues from these forest resources. The Forest Act should be
47
revised to be in line with the Village Land Act that recognizes that all resources
contained within a registered village should be managed by the village in
accordance with sustainability principles. The CB plan will target capacity
building to village leaders, councilors and district staff to be able to more
effectively influence policy makers on fundamental issues of devolution. This
capacity may include using district business councils or CSO networks, such as
are used in agriculture to lobby for farmers to free to sell grain across borders.
There will also be training to WD and the districts on the benefits of taxing
businesses after value addition rather than taxing the management of raw
products beyond regulating harvesting levels.

The part for the LGAs: incentives versus services
The CBFM reforms have resulted in revenues being identified that rightly belong
entirely to communities. On the other hand, the Forest Act continues to
maintain that revenues from royalties on National Forest Reserves and general
land belong to the Director of Forestry. The advent of TFS has further
marginalized the district in the forest benefits stream. Districts are now only
able to benefit from Local Authority Forest Reserves (LAFR) and from a 5% cess
or surcharge on royalties collected in their area of jurisdiction. At the same
time, districts are expected to provide the main facilitation and extension
services to communities undertaking CBFM. The lack of district funding has
resulted in districts negotiating an ad hoc and arbitrary fee from villages with
VLFRs. In Rufiji it was negotiated at 20% and in other cases it has been
negotiated at 10% only. The fact that this facilitation fee is not provided in any
legislation means that it is inappropriate. Furthermore, it is negotiated between
communities and their primary advisor, which is the district itself, thus making
the negotiations a conflict of interest. The CB plan will aggressively target the
building of capacity of districts to promote businesses based on natural
resources produce and value addition. In this way, districts will understand
better their role to stimulate economic activities at a higher value that will lead
to a wider tax base and revenue streams that come from business licenses and
property taxes.
Wildlife:

Complex regulations and expensive
The WMA regulations remain incredibly complex and stringent, leading to a long
process and being too expensive for communities to adhere to without external
support. The requirement for Resource Zoning, EIAs and General Management
Plans in WMAs is a standard higher than what is required of MNRT’s Game
Reserves and Game Controlled Areas. WD believe that the high standards are
necessary for WMAs because they are all expected to eventually solicit investor
backing and investors will not be interested in WMAs that don’t have these
documents. WD on the other hand can continue to rely on government budgets
48
to support their protected area network. The process of establishing a WMA can
cost as much USD 100,000, which is beyond the ability of villages and districts.
The CB plan will target both WD and district staff to allow them to understand
that WMAs in order to be viable must run as businesses. The focus of training
will be on contracting and identifying revenue streams so that investors can be
identified who will become partners with villagers in developing the WMA.

Not easy to get the required capacity
The capacity required to develop a WMA is beyond the ability of most districts.
In particular stock assessments, resource zoning, EIAs and GMPs are usually
undertaken by consultants. In fact, EIAs are required by law to be undertaken
by environmental experts who are registered with the National Environment
Management Council (NEMC). The result of this is that WMA development is out
of the reach of a district, without an investor or an development agency. The
CBC Unit of WD believe that they can at least pass on their experiences to
DGOs so that they can assist in quality assurance of consultancy reports. A
DGO may also be able to be trained to make an early assessment of WMA
viability in order to better prepare communities. As it currently stands, WMA
viability is undertaken as a latter step in the WMA process but it comes after
great time and expense has already been used in the process.

Impact of change in legislation
Legislation for game controlled areas has been changed retrospectively
therefore villages find themselves within the boundaries while the legislation
now
prohibits
human
activities
within
the
GCA.
The
current
Wildlife
Conservation Act (2009) declared that no GCA will exist on village land. This
statement has proved difficult to apply because in the past GCA did not exclude
human activities taking place, other than hunting of game. This has meant that
all over the country GCAs existed on land claimed by villages. The intention is
for the Protected Area Unit of WD to undertake a countrywide assessment of all
GCAs to determine which of them is still viable as a game management area.
Areas deemed to be too degraded will be permanently relinquished by WD. The
assessment is a slow process due to limited financial and human resources. The
ongoing process of assessing and agreeing to the borders of the KGCA is a good
opportunity for on the job training or action learning to take place in the way of
facilitation, conflict management and negotiating.

GCA on village land
In Kilombero the GCA has been deemed to be viable, based on a wildlife census
that was carried out of the Ramsar Site in 2009. However, the process of
agreeing a boundary for a revised GCA has not been smooth and remains highly
contested. Many villages, albeit not all, claim that the GCA is being located on
their traditional customary lands. MNRT has so far proved unable to negotiate a
49
boundary agreeable to all concerned. There is a need for boundary negotiating
skills not only in connection with the GCAs but also in connection with protected
areas that border with villages such as with Selous Game Reserve and
Ndundunyikanza Village in Rufiji District. KILORWEMP already within its work
plan intends to undertake policy review and management planning in relation to
fisheries within the KGCA, however, it is advised that broader short courses
should be arranged in boundary conflict management and resolution as part of
capacity building of the DFT. Such courses may be tailor made to be similar to
ones already being offered at ESAMI or Mzumbe University. The idea is that
treating fisheries in isolation from broader boundary conflict issues may not be
as effective.
Fisheries:

Not clear what is incentive to establish the BMU
The
BMU
guidelines
as
presently
drafted
offer
limited
incentives
for
communities to participate in this form of CBNRM. This is because entering a
BMU does not result in the provision of user rights. In the fishing sector user
rights are not regulated, as there is no limit to accessing a fishery. The BMU
process appears much more to be a method by which fishers and their
communities can be mobilized to capture revenues from traders on behalf of
the districts and the MLFD. Management planning is geared towards improved
spatial and environmental planning of beach landing sites and fishing camps
rather than managing the fishery itself. What is hoped by fisheries authorities is
that BMU will exclude fishers with destructive practices and thereby control the
resource in this way. However, it is not clear what additional benefit BMUs will
receive for preventing their own colleagues from destructive fishing practices.
To make matters worse, BMUs and fishing camps in general are poorly
monitored by fisheries authorities from either district or ministry level. Whether
BMUs adhere to principles of sustainable fishing management or not, is not
captured in any meaningful way by the relevant authorities.

Need to develop a national vision on who is allowed to fish and how to regulate
that
Unlike the forestry sector that has developed a National Forest Program me and
the WMAs which has regulations and annual targets in the WD plan and
budgets, the fisheries sector has no such development plan for BMUs. It is not
clear which of Tanzania’s fisheries is a priority area for establishing BMUs and
when this area should be developed. In addition to requiring a national vision
for BMU development based on stock assessments, threats and risks and
economic potential, it may be necessary for the MLFD to strategize on how to
regulate access to fisheries resources. At present the prevailing culture is for
anyone who wants to fish is allowed but it must be considered that the resource
will not support this view. KILORWEMP has an opportunity to raise these issues
50
as part of their work plan to promote BMUs in the KVRS. The work plan
recognizes that although many BMU processes have been started there is no
specific study to assess whether there is any sufficient economic incentive to
support the effort of fisher folk. It is important that a process of assessing
economic incentives of BMUs be taken up in policy review work that the project
is already planning to do.
Wetland management:

Think Piece on wetlands regulations:
The KILORWEMP project has developed a discussion note, which they have
called a Think Piece on Wetland Regulations. It remains unclear what status this
document has within MNRT and exactly who was involved in its preparation.
Nonetheless, it does state in the document that in order to assist MNRT in
conducting policy reviews, KILORWEMP has reviewed the available policy
framework for wetlands management while recognizing that there are two
separate wetland regulation drafting processes.
The note agrees that an up-to-date policy review of wetlands is not available
and it therefore puts itself forward as a summary of the questions arising from
the present draft regulations process, and which need to be answered to
confirm the options for Ramsar Site management. The note specifically intends
to list the following issues:
1. The evolution of the framework for wetland management
2. Some critical ongoing policy transitions which are of driect relevance to
the sector
3. Some proposals to support discussions on the way ahead
The Think Piece then outlines the progress that has been made since 2000 in
developing a Wetlands Strategy and national implementation programme. It
points to the progress made under the Danida funded SWMP Programme that
attempted
to
implement
a
decentralized
wetlands
management
model,
anchored in local government. At the same time, institutionally wetlands have
had to endure changes such as the Environmental legislation allocating
responsibility tot eh Vice President’s Office and ongoing reforms to establish the
TAWA combined with high turnover of staff in the Wetlands Unit.
The Think Piece concludes that the country has now reached a crossroads with
the two draft regulations processes. This situation has led to the 3 questions
being raised:
1. What is the accepted framework for integrating CBNRM into wetlands
management?
2. Without a decentralized natural resources management type programme
where will the financial resources ceom from for rolling out SWM
nationally?
51
3. Which of the 3 proposed Protected Area based Wetlands Management
Categories will, be applied and where?
Responding to these questions or even assessing the validity of the questions is
beyond the scope of the capacity needs assignment. However, it is possible to
assess the impact of the current situation on capacity building needs. Such an
assessment will be made here briefly.
The issues raised in the Think Piece are presented as being of a technical policy
nature however they are in fact more about leadership and vision. The 2
different regulations being developed are a result of two different ministries
claiming a single policy space. It is unlikely that simply answering the questions
asked by the think piece will by itself resolve these issues. The capacity needs
assessment has argued that consensus building is as important a skill as the
drawing of maps and the monitoring of ecological parameters.
The issues raised within the think piece seem to have at their heart questions
over the political will to deal with wetlands challenges in a coherent, evidence
based and cross sectoral manner. The response required appears to be one
where political will can be influenced and modified rather than building capacity
to simply draft laws and regulations, which will have only limited buy in.
An appropriate approach to influencing political could be to isolate decision
makers together with technical staff in order for consensus building to take
place. This would indeed require that technical staff in MNRT would be well
acquainted
with
the
technical
arguments
for
collaborative
wetlands
management. In this respect KILORWEMP could play a useful role by brining
examples and best practices from pilot activities in the KVRS to a multi-sectoral
dialogue forum where politicians, directors and technicians could be reached
with information that would assist them to reach a common understanding.
Otherwise, it is beyond the ability of this capacity needs assessment to
determine what the likelihood is of resolving the current institutional tug of war,
so that wetlands regulations can be drafted and accepted.

Limitations of the Guidelines:
Sector focus: The guidelines have been developed commendably from the
sector legislation but this has led to each sector focusing exclusively to its own
resource. This has meant that there is much duplication of processes such as
land use planning, participatory planning and mapping. Several stakeholders
have claimed that a more holistic natural resources approach would help to
streamline the process of obtaining user rights.
Ending with the issuance of User Rights: The guidelines for the most part lead
to villagers completing a process of developing a plan in a participatory manner
and having that plan endorsed by the community and recognized by law.
52
However, with the exception of the forestry resources assessment guidelines
and the WMA regulations (and hence WMA user guide), few of the guidelines
proceed to assist communities on how to ensure benefit flows from resources
on their lands. Value chain development of natural resources products is not
included in any of the guidelines.
Conservation more than commercial: Related to the above point is the fact that
all of the guidelines are geared more towards community based conservation of
natural resources rather than sustainable use of those resources. The WMA
regulatons have undergone the greatest amount of revisions and it can be
argued that these changes have not been fully reflected in the WMA User Guide.
The revisions include allowing communities to negotiate location of hunting
blocks and lodge lease agreements. The existing guidelines do not provide any
guidance on how these commercial arrangements could be carried out.
Incomplete decentralization: Because the guidelines are a reflection of the
existing legal framework they also reflect the weaknesses of that framework.
This means that the weaknesses of the laws in terms of incomplete
decentralization are found in the guidelines also. The forestry guidelines do not
indicate the process of communities obtaining hammer in order to legalize for
themselves their forest products. This step continues to depend on forestry
officers. Similarly, the WMA guidelines refer to a District Advisory Board without
making it clear how this organs advisory capacity differs from the District game
Officer and indeed the Wildlife Division itself. Finally, the BMU regulations and
fisheries user guide are unable to provide communities the mandate to fully
control a fisheries area by restricting access to excess fishers.
Geared towards LGA staff:
Although the guidelines universally declare that
communities and extension staff are their target, the guidelines are largely
meant for the benefit of district staff and NGOs. At a minimum of 50 pages,
there are no guidelines that can be used directly by community leaders such as
WEOs and VEOs, let alone by any typical villager ion the Tanzanian context.
This feature of the guidelines has probably led to the criticism that they are
applied too technically without sufficiently recognizing the need for governance
and facilitation skills being imparted to communities.
Institutions weak: Some of the institutions referred to in the guidelines have
proved to bee weak or at least not functional at the level that was expected.
This is particularly true for wetlands organs that are defined in the guidelines,
such as NAWESCO and the NWWG.
These organs do not appear to be
convening meetings at this point in time, something which retards the further
development of policy. This situation has an impact on the formulation and
53
eventual approval of wetlands regulations. The situation is exacerbated by the
fact that the Wildlife Division itself is undergoing institutional changes with the
establishment of TAWA. The institutional fate of wetlands is yet to be
determined.
4.2.5. Strategizing and prioritizing
Although the Division of Policy and Planning is tasked with coordinating MNRT’s
strategic plan, a challenge for the DPP is coordinating the two relatively powerful
divisions of Wildlife (soon to become Tanzania Wildlife Authority- TAWA) and Tanzania
Forest Services (TFS). The creation of TFS in 2010 and the intention to create TAWA as
a wildlife agency has meant that these forestry and wildlife executive agencies
perceive themselves as being even more independent and self-reliant, needing less to
be coordinated by the ministry’s policy division. As a result of the establishment of
sectoral executive agencies the management of resources holistically becomes more
challenging, as each agency will focus more on the sector from which it derives
revenue. The focus on revenues from protected areas also means that promoting
CBNRM on village lands will also be less of a priority for the executive agencies, which
will have no mandate on village lands.
4.2.6. Support to lower levels:
At central level, the national Decentralization by Devolution (DxD) institutional
framework, supports the MNRT as NRM leader and to PMO RALG as coordinator of
DxD, and relevant CBNRM. Bottlenecks may however arise from the availability of
qualified CBNRM officers, their permanence in function and channels of information
flow.
At PMO-RALG, the supervision of the decentralized processes is a core activity of the
Department of Sector Coordination (DSC) Unit, which is limited in capacity as it has
only 2 full-time staff to cover 153 districts nation-wide. Local government reforms and
DxD to date have focused mainly on the so called priority sectors of education, health,
water, agriculture and roads, with more than 85% of government grants going to
these areas. Natural resources sectors have suffered as a result of not having
undergone DXD, hence have no earmarked funds and are being accorded lower priority
within PMO-RALG.
4.2.7. M&E
Forestry:
Monitoring in TFS involves regular reporting from Forest Managers from each of seven
Zones countrywide as well as from Forest Managers placed in many Districts. There is
also reporting from Forest Surveillance Units to the headquarters. Reporting is on
licenses issued, revenues collected, captures, and law enforcement. The former FBD
did establish a database called NAFOBEDA (National Forest and Beekeeping Database)
which was designed to systematically and regularly collect this information from
54
central government, district and community forest managers. The system was based
on standardized monitoring sheets that could be filled in either manually or
electronically and eventually submitted to the headquarters for compiling. The
community sheets included information on the steps of the CBFM and JFM guidelines,
in this way allowing MNRT to monitor progress on PFM throughout the country.
Unfortunately, the NAFOBEDA process proved to be too complicated and unsustainable
and has apparently collapsed. There is currently an initiative to develop a PFM
Management Information System which will also be based on monitoring sheets from
communities, District Forest Officers and Forest Managers. The PFM – MIS will also
compile information according to the CBFM and JFM guidelines in addition to
information on harvests, contracts, revenues and forest health. The PFM – MIS is being
supported by TFS and UNDP.
Wildlife:
Monitoring in the WD is carried out by routine reporting from Game Reserve Managers
and Anti-Poaching Units to the Wildlife Development and Anti-Poaching Sections of the
Division. The Anti-Poaching Section has an Excel based database for collecting key
information. According to some WD staff access to Anti-Poaching Section information is
the most reliable as compared to other sections of WD. The information from these
reports is collected and analysed by staff of the Research, Training and Statistics
Section, compiled and made available to WD management for discussions and
developing actions. The type of monitoring that takes pace tends to be focussed on
anti-poaching and law enforcement activities rather than reporting on progress of
implementing a strategic plan.
There is currently no regular reporting from WMAs beyond reports from adjacent Game
Reserves and routine Anti-Poaching Unit patrols. Because many WMAs have been
initiated as part of projects there is information that is collected from many of them.
There is currently an exercise to collect and compile information from 7 pilot WMAs in
order to develop a WMA Monitoring System. The information will be loaded into a
computer-based database that will initially be established at the Authorized Association
Consortium Headquarters in Msasani, Dar-es-Salaam. Information collected will include
law enforcement data but also number of animals and ecosystem health data. In time
the database may be expanded and eventually relocated to WD. At this point in time
there are no similar plans to develop a Game Reserves or Game Controlled Area
Monitoring System.
There are 4 Ramsar Sites in Tanzania, each one with a Project Manager who reports to
the Wildlife Development Section on a quarterly basis. The KVRS Manager indicated
that he was untrained in wetlands management, including issues of monitoring. It is
unclear what indicators are being monitored and reported on from the Ramsar Sites,
however, in KVRS it is understood that whatever monitoring does take place is for a
small part, a few hundred hectares, of the entire Ramsar Site.
55
Fisheries and VLUPs:
It appears that monitoring of BMUs is done on a project by project basis rather than in
a centralized, systematic manner at MLFD. The same is less true for VLUPs, where the
NLUPC is obliged by law to register VLUPs nationally. Once this registration is done,
progress on VLUPs is one area where district council Lands Officers report on progress
to the Regional Lands Officer for onward reporting to MLHHSD. The progress reported
on appears to be more on the number of new VLUPs that are undertaken, as well as,
the constraints to undertaking more VLUPs in any particular district. It does not appear
that implementation problems of VLUPs are monitored centrally at MLHHSD in a
systematic way.
4.3. MNRT current Capacity Building approach:
Capacity Needs Assessments (CNA) and in some cases implementation of capacity
building have been conducted for several projects (e.g. Tanzania Forest Conservation
Management Project (TFCMP), UN-REDD, Forestry Training Institute at Olmotonyi,
etc.).
OPRAs are conducted in the WD, but they are not widely considered to be effective. In
the absence of a more effective capacity needs assessment process in WD, the
management of the Division have been supporting capacity building by paying for
short courses, diploma courses and in a decreasing manner degree and post graduate
degree courses. The annual WD budget allows for capacity building to take place, with
as many as 50 staff being trained in any particular year. Training needs are identified
by the Research, Training and Statistics Section through a process of analysing staff
employment history. Priority is given to staff that have been employed for a long
duration. The increase in poaching and habitat destruction has also led to priority
being accorded to short-term courses on conflict management, intelligence and
investigative techniques. Courses are offered through Mweka, Pasiansi and LukuyuSekamanganga for certificate and diploma level courses. Degree level courses are
offered at Sokoine University of Agriculture and the University of Dar-es-Salaam.
Increasingly, Game Officers are encouraged to identify degree courses on their own,
on the condition that they can attract their own funding.
Many Game Officers have been trained in Wetlands Management at various institutions
in Kenya, southern Africa and even in Europe.
These courses have invariably been
funded by projects or scholarships obtained outside the routine MNRT process.
Through support of the Danida funded Sustainable Wetlands Management Programme,
wetlands management has been integrated into syllabus of Pasiansi and Mweka
Wildlife Training Institutions. Some Malihai teachers have also been trained in wetlands
awareness. The Malihai clubs are wildlife and ecosystem education clubs that are
established at schools throughout Tanzania. Malihai clubs are sustained through funds
from the Tanzania Wildlife Protection Fund, which receives funding from tourist hunting
56
fees. In the absence of a ministerial capacity building strategy, the KILORWEMP
project produced work plan is the strategic framework against which a capacity
building and organizational development plan has been developed.
4.3.1. HR gap in numbers and quality
Although TFS has almost 2,000 staff, staffing for CBNRM has been declining in
connection with the completion of donor supported projects and the institutional
reforms to establish executive agencies. In the former FBD the Extension and Publicity
Unit (EPU) of the Forestry Development Section had been responsible for PFM
development. At its height, in the mid- 2000s, the Unit had as many as five staff
dedicated to promoting and monitoring PFM at the headquarters. The Unit was headed
by a Principal Forest Officer, a senior position in the FBD hierarchy. The EPU was
further supported by Zonal Extension Offices (ZEO) throughout the country, but in
particular those ZEOs that existed where PFM was receiving donor support from
Danida, Finland and the World Bank. The EPU was also supported to coordinate PFM
issues at district level through collaboration with 2 NRM staff in the Department for
Sector Coordination (DSC) in PMO-RALG. Coordination involved planning, budgeting
and approval of grants to support PFM in participating villages through District
Development Planning.
As Danida and World Bank support to PFM ended so have the FBD structures declined
in importance. The DSC in PMO-RALG is currently not coordinating PFM at the district
level. The EPU has now been absorbed into TFS and no longer promotes and monitors
PFM roll out and implementation. The National PFM Coordinator is the only staff
responsible for PFM within TFS. Even the ZEOs have been absorbed into the Zonal
structure of TFS but PFM has been given low priority. This is largely due to the TFS
mandate to manage government reserves and not to infringe on community forests on
village lands. The result is that there is only 1 Senior Forest Officer responsible for all
of the PFM programme in the p[aren’t ministry. A decision has been made, and a
Presidential order passed, to reinstate FBD, which will have responsibility for PFM.
Exactly how well staffed PFM officers in the new FBD will be is yet to be determined.
An exact number of WD staff has not been determined. However, it is understood that
through a process of assessing employment history the Research, Training and
Statistics Unit of WD is able to identify between 10 – 50 staff that qualify to be trained
at various institutions. The Wetlands Unit (WU) has a history similar to the EPU in TFS.
The Wetlands Unit was established at a time when Danida was supporting the
Sustainable Wetlands Management Programme (SWMP). At its height the WU had a
staff compliment of 4 WD staff, in addition to an International Technical Advisor. The
WU has always been a unit under the Wildlife Development Section. However, the WU
has not always been headed by a Senior Game Officer. WU currently has 1 Senior
Game Officer who is following up the wetlands programme. Another officer is attending
studies at University. The collaboration between the KILORWEMP project and WU is not
57
only because of the Kilombero Ramsar Site but also because the KILORWEMP Project
Manager is a former staff of the WU.
WMA development is the responsibility of the Community Based Conservation Unit
(CBC) under the Wildlife Development Section of WD. The Unit currently has 6 staff
assigned to it, one of whom is pursuing a MSc in degree Environmental Studies in
Australia.
Although all the CBC staff are familiar with and participate in WMA
development, there are 2 core staff who deal with WMAs on a day-to-day basis.
Another member of the CBC is new, having only been transferred in 2 months
previous. As with the WU, there is a great deal of staff turnover in the CBC Unit and
other members are subject to ad hoc duties assigned by upper management. The head
of the CBC Unit is a Senior Game Officer who deals mainly with boundary conflicts and
Human – Wildlife Conflicts. As a result the head of unit is often liaising with ministry
level officers in pursuit of boundary conflict resolution.
The 2 core WMA officers have been able to visit each of the WMAs currently being
developed by different communities. The officers are involved in facilitating WMA
establishment, advising AAs on leadership challenges, development of monitoring
systems, and advising the Director of WD on WMA approval. The staff are largely self
taught, having participated in consultancies that have been commissioned by donors to
assist WMA establishment. The WMA officers are particularly experienced in WMA
resource zoning and preparing of General Management Plans (GMP) because of having
participated in several consultancies. The officers have also attended short courses on
topics such as monitoring wildlife numbers. KILORWEMP has an opportunity to bring
together the CBC and DGOs from the districts in a collaborative learning event.
Specific sessions, especially pertaining to policies and regulations, could be delivered
by the CBC staff to district staff and thereby develop a ToT capacity amongst WD staff.
4.4. Collaboration
4.4.1.Interdepartmental collaboration
Interdepartmental collaboration currently takes place in the field much more than at
policy level. In areas where there are forest reserves adjacent to, or in proximity with,
game reserves and game controlled areas, patrols can be undertaken together
between wildlife and forestry. At MNRT, the Division of Policy and Planning is
responsible for compiling strategic plans, annual plans and budgets. The DPP process is
very much focussed on compiling rather than making a comprehensive strategy that
indicates shared priorities and vision. The DPP also has responsibility for shared
monitoring of the MNRT strategic plan, however, this is geared towards assuring
adherence to the strategic plan and budget execution. In Kilombero instances of
collaboration on patrols were encountered with regards to the Kilombero Game
Controlled Area (KGCA) where rangers from the Udzungwa National Park, under
58
TANAPA, collaborated with the KGCA Manager and staff from the mobile Anti-Poaching
Units of the Wildlife Division.
4.4.2. Interlinking with other Ministries
Inter-ministerial collaboration is even more limited than collaboration within MNRT.
There are instances of collaboration between TANAPA, WD and Fisheries Officers from
MLFD in connection with patrols within the Kilombero River. However, there is no
collaboration between MNRT’s divisions and MLFD with regards to promoting CBNRM.
In fact, the Fisheries Department has not developed a BMU Development Programme,
so that collaboration with TFS and WD can only take place at an ad hoc filed
implementation level.
Some collaboration has taken place between MNRT and PMO-RALG with regards to
promoting PFM and Sustainable Wetlands Management Programmes (SWMP). These
two programmes had both been supported by Danida and had shared similar
procedures in planning, financing and monitoring. The Division for Sector Coordination
in PMO-RALG had been coordinating between WD, FBD and the districts where these
programmes
were
being
implemented.
Although
there
was
inter-ministerial
collaboration in these programmes, at the strategic level there was no joint planning
for the 2 components. The Danida supported SWMP programme did not have any field
implementation activities in the Kilombero Valley or the Lower Rufiji River.
4.5. Governance
The Governance component of CBNRM at national is very complicated and has several
layers of dynamics that can clash. The sectors are scattered over many different
Ministries and there is no clear vision to somehow connect them together. This has
implications for the coherence in policies and therefore for the implementation of the
policies at district level. The way the Ministry is structured and the way that CBNRM is
anchored in the different divisions is not conducive for the harmonization and smooth
implementation
of
the
CBNRM
policies.
In
addition,
with
the
transition
of
responsibilities from the Ministry to TFS and TAWA, CBNRM has not been situated to
the most logic division/section yet.
Because of this unclear situation, access to information, transparency, dialogue and
influencing has been seriously obstructed. The best evidence of this incompetency, is
that the assessment team had difficulties to obtain requested information and to get
insight in the capacity needs of the Ministry. It was not possible in a period of 2 weeks
to meet the different sections and units of the Wildlife Division (only 2 out of 6).
4.6. Role of Regional Level: Regional Secretariat, RC’s office.
The regional Secretariat is the extend arm of Central Government and therefore still
under the Ministry and not yet under Local government.
59
The RAS’s office is to support relevant actions in NRM, by consolidating and
supervising reporting, planning and budgeting, giving technical support to the districts,
when emphasis is on NRM and its importance in LED plans. However, currently, there
are no Regional Fisheries Officers in either Morogoro or Pwani (Coast). Although all
other NRM relevant positions are filled, one of the main constraints the Regional office
is a lack of financial resources to be able to backstop the districts and provide technical
and enforcement support.
Regional Commissioner (RC):
The Regional Commissioner is appointed by and representing the President in all
matters in the region. Therefore, the role of the Regional Commissioner is very
important for CBNRM on an ad hoc basis, namely when there are serious conflict and
security issues as was the case in Kilombero last year when pastoralists had massively
invaded the area. Due to the growing population in Tanzania, the resulting increasing
pressure on land and the fact that pastoralism is not an accepted form of livelihood in
Tanzania (and therefore no range land management policy) pushes pastoralists for
greener pastures elsewhere.
The RC has intervened together with the RNRO to evacuate the pastoralists, who were
to return to their original location (which was taken by agriculture now) or auction
their cattle. A limited number of cattle were branded to indicate that they were allowed
to stay, based on the carrying capacity of the location. Many pastoralists moved to the
South and to Rufiji and many came back again after a few months.
Regional Administrative Secretary (RAS):
The RAS is the executive arm of the Regional Commissioner’s Office and the extended
arm of Central Government (PMO-RALG). The RAS and his/her team of sector officials
have a dual role:

Facilitating an supporting the LGAs in the consolidation of the reform process
(DxD)

Supervision, monitoring and reporting of the progress of the implantation of the
approved District Development Plans.
They are responsible for the smooth operations of the council management systems,
ensuring quality implementation of national policies and for the quality of overall
planning, budgeting and reporting of all sectors at district level.
There are about 8 clusters in the regional secretariat structure headed by an Assistant
Administrative Secretary (AAS) who is coordinating the included sectors. Two of those
clusters are relevant for CBNRM namely Local Government (including financial
management, administration, service delivery, legal matters and good governance),
and the Economic and productive sectors cluster which includes Natural Resources,
Fishery, Livestock and Agriculture.
60
Assistant Administrative Secretary Local Government (AAS LG)
The sectors in this cluster are all targeting the support to LGAs management systems,
including the functioning of the management tools (Epicor, PlanRep, OPRAS, LAWSON,
LGMD, etc.). It is not clear if this level has all the competencies necessary to provide
that support to LGAs. Performance measurement and capacity building at LGA levels
could be improved with help of the RS. OPRAS seem to work well at regional level
better then at LGA level. The Region assesses the performance of the LGAs through
the CAG reports and the Council Director Performance report, which is generated
based on the council OPRAS.
Assistant Administrative Secretary Economic and Productive Sectors (AAS EPS)
Regarding Natural Resource Management, the regional level is the first level where the
sectors of land, environment, NRM, livestock, fisheries, water and agriculture are
relatively easy to coordinate in a more comprehensive landscape and wetlands
approach. Due to the pressure on land and water as well as the current drive to
substantially expand agriculture land through big investments there is need for a
platform where the stakeholders can discuss and address issues in a more
comprehensive way. In addition, the region could play a more prominent role in not
only bringing the relevant sub sectors together but also civil society and private sector.
The challenge is to ensure that the line Ministries are recognizing this advantage and
are willing to cooperate in the same line of thinking. Also it is not sure if the Region is
strong enough to advocate this approach towards the LGA level, which depend on the
line Ministries for their finances.
For example, in Morogoro, the Region was not supported at all by the Ministry of
Livestock and Fisheries in the resolution of the pastoralist problem, only by MNRT and
MAIC.
The Region has an important role to play in M&E and should be involved in the
development of the M&E mechanisms for the different CBNRMs. Currently, Morogoro
region receives some limited additional funding ( 5-7 M) from Finnida and Danida for
M&E of PFM in Kilombero, Kilosa and Ulanga. Any involvement of the region in M&E
activities is/has been driven by projects (e.g. monitoring of Ramsar management plan)
61
5. Organizational level: LGAs
The generic council management systems and instruments used at the districts can be
systemized as below.
Figure 5: Council management and tools
This assignment only addressed those systems and instruments that are relevant for
the harmonization of the CBNRM and land use planning issues, the improvement of the
enabling business environment for the same as well as the value chain development
and business development of NR related products.
5.1. Council management capacities:
5.1.1. Planning, Budgeting and Reporting
Since the start up of the Local Government Reform Program I (2001) much power has
been devolved from central to the district level. Districts have been restructured,
systems and processes have been put into place and district staff has been capacitated
to use the systems, which is supposed to facilitate the provision of services to the
communities. In terms of planning, the national approach is to use the participatory
planning process (O&OD) starting at the village level where opportunities and
obstacles are being identified and plans are forwarded to the district level to request
for support in development activities via the ward development committee. These
plans are being compiled, corrected and included in the integrated development plan of
the district, to be scrutinized by the Region on quality, approved by the RCC and
further moved upward to the parliamentary committee (PAC LAAC). District staff
together with regional staff is to defend their proposed budgets at Bunge in
62
preparation of the budget session in May. The districts will know about the amount
finally allocated to each of them in July, when the new financial year starts again. The
money it self however often does not arrive before September/October and not the full
amount that was allocated.
Though the district is supposed to have discretionary powers over its budget, the
planning and budgeting process is largely dependent on the given MTEF ceilings and
instructions by central government on how to divide the (capital) development funds
per sector and amongst the different levels. The instructions are dependent on the
national priorities (Big Results Now, vision 2025, Mkukuta and donor funding through
general budget support and the SWAPs) that might vary per year. For any other
activities, the district is supposed to generate its own revenues. As a result of this
approach, there are hardly any or no funds available for the implementation of Land
Use Planning and CBNRM related activities unless through projects. The little revenue
that is generated (own resources) often is used to pay the statutory costs for the
councilors (eg. case of Rufiji).
5.1.2. Decentralization of funds to lower levels
The decentralization by devolution (DXD) thinking follows the principle of subsidiarity,
which means that devolution of power is delegated to the lowest possible level. In the
case of Tanzania, it means that the financial devolution goes all the way to the village
and in case of health and education sectors even to the facility level. However, the
funds for capacity building (Capacity Building Grants) are transferred to the district
council, which is supposed to devolve 40% to lower levels. In many cases, the LGAs
have used that money to buy motorbikes for the WEOs and bicycles for the VEOs,
however no fuel or maintenance money is being provided, which makes the investment
ineffective.
5.1.3. Management System Tools:
To manage the funds, districts have to use Epicor, which is a financial management
system linked to the national server in Dodoma. Epicor as a tool has had many hickups and is still giving problems, which is used widely as an excuse for the LGAs to be
less transparent then required. In addition, many department staff are not sufficiently
familiar with this system, which results to work overload for the Planning and Finances
departments, which have to introduce it into the system for all the departments.
Another tool that is used for planning and reporting is called PlanRep, which is linked
to Epicor (in most cases). This tool has been well embedded into the whole system and
is functioning reasonably good. There seems to be no problems for integrating NRM
into this planning tool. However, the quality of planners that was encountered from the
DPLO office seemed to be rather weak considering the importance of the department
for the overall functioning of the council.
The Local Government Monitoring Database (LGMD) system, which is meant to provide
for the monitoring of the executed activities, has never functioned so far. Apart from
the fact that the responsible staff has not been properly introduced to the use of the
computer program it self, the main reason is that the tool depends on the input from
63
the WEOs, VEOs and extension staff at lower levels without the necessary means for
them to collect the information. In addition, the LGMD format does not provide space
for NRM to include relevant indicators for monitoring and therefore even if the system
would work, it would not be sufficient for NRM processes to provide for the required
information for adequate decision-making.
The only M&E tool developed related to NRM is the National Forest and Beekeeping
DataBase
(NAFOBEDA).
Unfortunately,
also
this
M&E
system
is
never
fully
implemented. The National Coordinator of TFS mentioned that in anticipation of the
reinstatement of the Forest and Beekeeping Division under MNRT, the TFS is
developing the PFM information management system (with UNDP support), which will
be digitalized.
Table 13: Capacity to use the ICMS
Rufiji
Epicor
No
Kilombero
problem?
No
information
Accountants
Ulanga
to
be
trained
DT is competent, but
accountants are not
But problems with priority
sufficiently
setting for NRM
capacitated.
Most of Own Sources goes
HoDs
to Councilors
strengthened.
Not enough
need
to
be
reinvestment
in NRM
PlanRep
No problem
No problem
No problem
LAWSON
No mention of the tool
Being used
Being
Succession
plan
not
approved by CG
Many
vacancies
(7
foresters and 3 scouts)
used
system
but
is
not
accommodating
HoDs
need
to
be
capacitated on how
to
develop
the
succession plans of
their departments
OPRAS
Implemented
but
effective
not
Implemented,
but
Implemented
but
employees don't like it
still
because
and not known to
no
benefits
linked to it.
controversial
all. HoDs as well as
section staff need to
be
further
strengthened.
Capacity
Last plan 2011/12
Plan available 2013/14
Building Plans
Procurement
and
contract
management
TNA
available
2013/14
No information
No information
All HoDs need to be
introduced
to
new
law.
64
LGMD
Not applying
Not applying
Not applying
Not beneficial for NRM
Not beneficial for NRM
Not
beneficial
for
NRM
PFM
No information
No information
No information
Need for record keeping
Record management
capacities
staff
Information
Management
System
Documentation
Many
and
record keeping
record
keeping
One
complaints
result
is
about
is
of
education
boundary
not
dispute of WMA
and
are
to
use
tools
for
able
digital
low
record keeping
The districts currently report on a quarterly basis, including NRM. The provided
information is mainly about progress of planned activities and arisen issues. The staff
complains that there are no adequate funds for doing proper monitoring. Only the
sectors that have SWAP/LGDG money can go into the field and follow up on progress.
Table 14: Basic administrative and financial information per district
Rufiji
Kilombero
Ulanga (2011)
203,102
321,611
234,150
6
5
7
Wards
27
23
31
Villages
96
102
91
2
1
2
40
33
41
21.8 Billion
36.8 Billion
27.7 Billion
4.2 Billion
7.6 Billion
5 Billion
1.25 Billion
4 Billion
2.5 Billion
Allocation % for Land
0.2 %
0.8 %
0.4 %
Allocation % for NRM
0.5 %
2.7%
1.4 %
% of revenue from NRM+ land
60 %
2.4 %
2.5 %
% of revenue from agriculture
14 %
70% (rice)
85 % (rice)
-
-
153,000/=
362,041 (?)
-
115,500/=
Population
Divisions
Election constituencies
Councilors
Total budget
Development budget
Own resources
and livestock
District GDP
Per capita income
In Rufiji there was additional funding for the establishment of Village Land Use Plans in
all villages by the National Land Use Planning Commission as well as by Mkurabita.
65
5.1.4. HR and capacity building
Figure 6: Capacity Building within the Government system
Performance
organizational level
Roles and
Capacity
responsibilities
need
Capacity gap
learning
OCA
Package
Capacity
OPRAS
support
CBP
Institutional
Embedding
The Human Resource Management at district level entails, the staffing, in numbers and
in qualification, the succession schedule and capacity building of the staff, the
allowances and retirement schemes, performance appraisals, etc.
Since 2011, the LAWSON tool has been introduced to digitalize the HR system. The
main obstacle for the proper functioning of this system is that it is linked to the Epicor
system (with the server of PMO-RALG in Dodoma) while it falls under another Ministry
(PO-PSM with the server in Dar es Salaam). In addition, as soon as Epicor experiences
a technical error, the LAWSON system is also affected.
Another obstacle in the HR department is that the performance appraisal tool called
OPRAS is not taking into account the difficult financial situation at LGA level. It allows
the employee to excuse him/self for non-performance due to non-availability of
funding and transport possibilities. This means that the district does not have an
effective tool or mechanism that measures performance at organizational level.
When referring to the staffing situation in the three districts of the project, there is not
enough staff for the sectors as required.
Capacity building at district and lower levels is funded through the capacity building
grant (LGDG grant system). The grant (on average 35 MThs/=) is supposed to provide
for: retooling, temporary staff, career development and skills development. In some
districts (Rufiji) the grant has not been received since 2011. Since then, the LGAs are
dependent on Own Resources or projects to fund capacity building activities. In Rufiji
and Ulanga there were hardly any capacity building activities since 2011, while
Kilombero still received that grant.
66
Table 15: Staffing availability in Rufiji, Kilombero and Ulanga district councils
District
Education
Land
Wildlife
Forestry5
Fisheries
Environment
7
11
1
7
11
1
Total
Council
Rufiji
MSc
BSc
6
Diploma
10
Certificates
Form IV-VI
Kilombero
Total
6
MSc
1
BSc
1
2
2
2
Diploma
3
2
4
4
Certificates
4
3
2
For IV-VI
2
8
11
12
10
1
1
Total
Ulanga
(2011)
MSc
10
1
1
1
BSc
3
3
4
Diploma
1
1
2
Certificates
35
5
9
1
52
3
1
For IV-VI
4
7
7
4
Total
8
17
14
8
47
Rufiji:
The HRO provided a list with vacancies indicating that 17 staff for NRM are missing
(32% of the required staff).
The district had 94 VEOs and 17 WEOs in 2010/2011 (while 96 villages and 27 wards).
The capacity building plan of 2010/2011 indicated an estimated budget of 41,777,000
Ths/=.
It is not clear to what extent the plan was implemented and with which funding.
5
including beekeeping officers
67
Table 16: List of LGA positions, qualifications available and capacity requirements
Sector
Positions
Current Qualifications
Capacity Requirements
available
Human Resource
3
Bachelor Degree
TNA, HCMIS, Disciplinary
officers
Handling and Manpower
Planning
Planning Officer
4
Financial
17
Bachelor Degree
PlanRep
Bachelor Degree & Diploma
EPICOR
Management
Environment
1
Bachelor Degree
Environmental Management
Land
6
Bachelor Degree & Diploma
GIS and Land use Planning
29
Bachelor Degree & Diploma
Environmental Management
Agriculture
and Food security
Water
26
Bachelor Degree & Diploma
Water Resource Management
Livestock
22
Bachelor Degree & Diploma
Livestock and Environment
Management
Fishery
11
Bachelor Degree & Diploma
Water Resource Management
Trade
2
Bachelor Degree & Diploma
Negotiation Skills
Cooperation
4
Bachelor Degree & Diploma
Cooperatives Skills and
Management
Community
13
Bachelor Degree & Diploma
Communication Skills
Bachelor Degree
Legal Procedures
Diploma and Certificates
Bachelor, Degree, GIS and
Development
Legal Officers
2
Wildlife
10
Wildlife Management
Beekeeping Officer
2
Bachelor Degree
Conservation Management
Forestry Officer
5
Bachelor Degree & Diploma
Forestry Conservation
Table 17: List of vacancies in Rufiji district Council 2013/2014
No
Sector
Vacancies
1
NRM
17
2
Agriculture & Cooperation
15
3
Livestock & Fisheries
16
4
Community Development
10
5
Human Resource Management
1
68
6
Planning
1
7
Financial Management
6
8
Legal Officers
1
Total vacancy
67
Rufiji District Council is not one of the preferred districts to work in for LGAs due to its
remoteness and limited development. Therefore, it is hard to find staff willing to stay
there. At the same time, the councils are dependent on the approval of PMO-RALG and
the recruitment by UTUMISHI to get staff assigned to them, which is not a very
transparent and reliable process.
Kilombero:
Kilombero District Council planned to spend for 110 M on capacity building and 78 M
on retooling in the year 2013/2014 according to the MTEF under the LGDG Capacity
Building Grant vote.
The following Capacity Building activities were included:

4 drivers to participate in logistics and protocol

Conduct training of HoD on good governance and administration (Ethics,
Principle, Laws and Regulation)

Training of councillors on political tolerance, laws and guidelines

Training on conducting meetings for ward councillors

Conduct training on administration and leadership to 17 hamlet chairpersons
However, in the Capacity Building Plan 2013/2014 the ceiling for capacity building is
put at 48,7 M with 25M for skills development, 5.8 M for technical assistance and 7.3M
career development leaving 9.7M for retooling.
One argument forwarded in Kilombero was that district officials don't like to go on
long-term training, because they earn more money when they are working with per
diems.
Ulanga:
The requirement for the NRM staff in Ulanga is 43 while there is only 22 staff present.
That means 21 vacancies (50%), which is impacting the departments substantially.
Despite that the department requested for staff every year, they have not received
approval yet from PMO-RALG/UTUMISHI. There is not enough own sources generated
in the district to be able to pay for temporary staff to fill the NRM vacancies, also
because NRM is not a national priority and not really interesting for the councilors, who
prefer to “shine” with social projects.
Regarding capacity building:
In the staff training needs assessment of 2013/2014 it is foreseen that 16 NRM related
staff are planned to receive capacity building between 2013-2017:
69

1 PhD In conservation social sciences in UDSM

9 for MSc varying from forest resources assessment and management, natural
resources management to environmental and natural resources economic either
at Ardhi University or SUA

2 BSc in Wildlife Management and Forestry

2 diploma’s in Geoinformatics and wildlife management

1 certificate in wildlife management
It is not clear in which way the council is funding this plan. The last CBG was received
in 2010/11. At the same time, there was a rather substantial budget foreseen for the
year 2011/2012 of 463,879,000 Ths/=, the result of combined funding from LGCBG,
USAID, SoliderMed, and Pamoja Tuwalee (see Ulanga district Council comprehensive
capacity building plan and budget for 2011/12). Currently there are 9 council officials
who are doing a MSc of which 2 NRM, 2 Accountants, 3 Community Development, 2
planning officers.
5.2.
CBNRM capacities
5.2.1. CBNRM vision and integration in council
Community Based Natural Resources Management is synonymous with Decentralized
Natural Resources Management (DeNRM) in that both processes refer primarily to
communities managing natural resources on village lands. A formal DeNRM program
does not exist in Tanzania, where public resources would be channeled through district
councils in order to facilitate communities to manage their wildlife, forests and
fisheries.
In Tanzania each division is promoting its own policy and strategy separately. PFM is
promoted by TFS independently of WD or the Fisheries Department and with little
collaboration with PMO-RALG. In many cases CBNRM is promoted sectorally from
MNRT or MLFD straight to the districts without involving PMO-RALG in a systematic
way.
This CBNRM vision is lacking at all levels, which is most felt at district level. The
principle of a coordinated approach is only being promoted and enacted through the
projects.
5.2.2. CBNRM: VLUP, BMU, WMA, PFM guidelines
VLUP:
Village Land Use Plans have been developed over time by the National Land Use
Planning Commission (NLUPC) of the Ministry of Lands, Housing and Human
Settlements Development (MLHHSD) 6 . Guidelines have been developed, which are
widely known at the district level. VLUP is required for all of Tanzania’s 12,000 or so
registered villages, however, in reality budget constraints have resulted in only about
6
National Land Use Planning Commission (NLUPC). 2013. Guidelines for Participatory Village Land Use Planning,
Administration and Management in Tanzania. 2nd Edition
70
10% of the villages having land use plans. VLUPs are currently implemented in villages
where there is a donor-funded project or where there is investor interest. A national
VLUP development plan, with priority areas does not exist. Despite the criticism of the
VLUP guidelines contained in the KILORWEMP BSL, the capacity needs assessment
found them to be useful in that they promote participatory land use planning at the
village level. When properly applied they allow village land uses to be agreed and
formalized. However, the guidelines do not cater for intensive and commercial
management of land parcels within the village boundaries.
Official Land Use Planning guidelines do not exist for any other level than at the
village. This is most likely because only villages and the national government are land
administering authorities. The result of this is that land use at district, regional or
ecosystem level cannot be planned within any legal framework in Tanzania. This is
important since by-laws are used to underpin the legality of land use plans and without
by-laws that can be recognized in court of law any land management plans for a
landscape such as the Kilombero Ramsar site or Lower Rufiji River would lack legal
recognition.
PFM:
Community forestry guidelines are split into two types, JFM where communities
manage government forest reserves and CBFM where communities are managing their
own forests on village lands. The CBFM guidelines have been in use for more than 7
years and have proved to be appropriate. However, the guidelines suffer from being
only in English, requiring a Kiswahili version. The guidelines also suffer because they
are drafted for the benefit of district extension staff. Kiswahili guidelines should be
produced with communities as their target beneficiaries. The guidelines are aimed at
describing the process that leads to legal recognition of community forests but there is
no guidance on how to implement management plans. Although there are guidelines in
English for Participatory Forest Resources Assessment (PFRA) there are no guidelines
on how to do detailed forest stock assessments that integrate NAFORMA data, no
guidance on developing harvesting plans, no guidance on drafting market feasibility
studies, etc.
WMA:
The creation of WMAs involves extensive investment of time and resources funded
almost exclusively through donor assistance. The cost and relative complexity of the
12 step WMA process, although varying between WMAs, has been beyond the reach of
communities. The long period of reliance on facilitators has created a dependency
syndrome that persists to the present day. Donor funding of WMA operations,
including provision of sitting fees or meeting allowances, results in CBO and village
council members accepting unsustainable cost structures. Consequently, the process
as currently implemented is conditioning the WMAs to unrealistic expenditure patterns.
71
Despite the lengthy and expensive process of establishing a WMA, a feasibility of its
business plan and viability is not required as a pre-condition of the process. The result
is that some WMAs achieve formal recognition before they know the level of resources
and whether they can be marketed successfully.
BMU:
BMUs have little capacity to detect illegal fishing practices due to lack of development
and operations plans, limited support from districts, and inadequate evaluation by the
ministry. There is widespread presence of informal landing sites and the management
of fisheries is often inadequate due to poor data collection and analysis. Revenue
collection is a district council mandate and is often outsourced to private companies
whose interests are in profits alone. The lack of a revenue incentive for BMUs is a
major weakness in their guidelines. There is often also poor cooperation between
village executive officers and BMU leaders. The Division of Fisheries has not
established enforceable plans of switching from open access to limited entry fishing in
order to control fish stocks. Licensing in many districts is not effective, as many fishers
and vessels are not registered with the BMUs.
5.2.3.Capacity gaps:
Based in the interviews and the work sessions with the DFTs in the three districts the
following capacity gaps have been identified per CBRNM unit and per district. These
performance issues are the basis for identifying the capacity needs of the actors
involved.
This means that though individual officials may have capacity gaps in their career
development, these will not be the basis for the plan. And similarly, though the team
has been provided with some capacity building plans prepared by the district councils,
these will not be the basis for the proposed plan.
As indicated in ToR of the assignment (see annex 1) the consultants will not consider
long term Capacity Building:
“Long term individual career advancement via postgraduate studies is not considered
as a core approach eligible for funding under the present BTC support. This is on the
basis of considerations related to the costs, time lag between investment and results
achievement, challenges of results measurement, strategic relevancy (i.e. opportunity
costs) and alternative sources of funding for this type of activity.”
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Table 18: Overview of capacity issues regarding CBNRM per district
Rufiji
Kilombero
Ulanga
Visioning
No CBNRM in district strategic plan
No CBNRM in district strategic plan
No CBNRM in district strategic plan
VLUP
VLUP capacity exists, entire PLUM Team trained in
VLUP capacity exists, PLUM Team too
VLUP capacity exists, inexperienced in
use of GPS by MKURABITA, pastoralists a challenge
agriculture
services
detailed zone management plans 2 PLUM
District Town Planner prepares VLUP maps together
focused, pastoralists/pasture management
members with GIS training; PRA to
with
a challenge.
involve marginal groups; pastoralists a
coordinates.
VLUP Training in Kilombero Valley needs
challenge; ineffective by-laws.
Villagers prepare sketch maps themselves, district
to integrate the flooding of the Kilombero
VLUP Training in Kilombero Valley needs
staff do not interfere with sketch map preparation.
River.
to
Carrying capacity assessment capacity is weak, can
Kilombero
do multiple allocations to same piece of land; land
formula to determine appropriate livestock
Problem of data, no system of capturing
is an entry point of everything in NRM;
numbers,
land use data;
the
District
Surveyor
who
provides
the
and
community
District
i.e
uses
3.5
the
acres
hectarage
Livestock
integrate
the
flooding
of
the
Kilombero River.
Units/Year (for domestic Zebu cattle) and
Inadequate storage of documents and
5
maps
acres
Livestock
Units/
Year
(for
improved breeds).
(no
land
registration
“office”/cupboard)
KDC expects that pasture management
expertise can be solicited from SUA.
No GIS specialist
No capacity at Village Land Tribunal
WMA
Aware of 6 steps but have not completed the 6
KDC
steps;
experiences
from
Ngarambe-Tapika
visited
Grumeti
WMA;
Other
District
staff
inexperienced
had
trained
1
in
WMA;
Kilombero stakeholders need to visit other
FRONTIER
WMA;RDC visited Ikona and MBOMIPA WMAs.
WMAs that are successful.
ecological monitoring; need support with
staff
in
Lacking someone competent in WMAs at Rufiji
KDC need capacity to market for investor
business plan to market a remote WMA.
District Council, since they are new guys
Once user rights are obtained for Iluma
Once user rights are obtained for Iluma
WMA the expectation is that an investor
WMA the expectation is that an investor
will be solicited.
A
Kilombero
will be solicited
Valley
wildlife
census
is
needed
No staff experience with WMA.
The NGO FRONTIER trained 1 staff in
Resource Zone Management Plan and
ecological monitoring
Business Plans capacity needs to be
Capacity is needed on how to market a
shared with LGAs; develop a consultancy
remote WMA (including ecotourism)
where a contractor involves LGA staff so
that they can get experience
There is a hunting company, capacity
needed
on
how
to
involve
hunting
company in WMA development
Some staff visited and were inspired by
Uyumbu WMA in Ugalla.
-
Ecotourism and local tourism
-
VGS lacking skills
-
CBO lacking skills
-
Wildlife
corridor
knowledge
imparted to LGA staff
PFM
Rufiji District Council staff is familiar with CBFM
There
guidelines and has successfully applied them in
awaiting
Mtanza
streamline PFM steps is needed.
interpret
marketing is a challenge in the absence of detailed
KDC wants to enter into a Joint Forest
challenge, even for honey; harvesting
guidelines on these topics.
Management arrangement in Ihanga Local
plans made but of poor quality.
Several projects depend on one Forestry staff.
Authority
NAFOBEDA is not well known, need to share PFM-
neighboring villages.
IMS with 3 districts
KDC
Msona
Village
but
harvesting
and
are
8
VLFRs
approval,
Forest
wants
to
but
the
by-laws
are
Are able to do PFRA but lack NAFORMA
capacity
to
inventory data and lack capacity to
Reserve
with
3
the
marketing
a
Forest Management Plans have been
conservation focused, they now need to
review
the
Forest
integrate
more
Management Plans of 4 Villages in order to
marketing
provide for harvesting to take place. There
Ulanga
has
forest products.
been
data;
increasing
pressure
from
need
harvesting
marketing
and
support
communities to start harvesting in their
74
for
VLFRs.
Understanding of value chain marketing
to
for timber, charcoal (with improved
develop harvesting plans will come from
kilns) and honey; modern beekeeping
TFS.
skills.
KDC does not have any expertise on
Knowledge
marketing of forest products. This capacity
charcoal (technical and facilitating)
KDC
expects
that
advice
on
how
on
improved
kilns
for
needs to be outsourced.
BMUs
SWMP trained the staff of RDC on Wetlands;
Fishers, vessels and traders registered by
No capacity to do fish frame survey; fish
Rufiji District have experience from WWF-RUMAKI
District;
frame survey not a priority of councilors;
and KVRS projects;
management
Hosted WWF –RUMAKI project on coastal BMUs; too
few staff to effectively monitor fishery.
no
capacity
plan;
to
SWMP
do
fisheries
trained
on
need capacity on collaborative beach
Wetlands
management.
KDC has wetlands experience under SWMP
UDC has the vision that all fishing camps
where some of the staff were included in
should become BMUs.
the training to Rufiji.
There is a need for negotiating skills on
KDC expect that capacity to conserve the
KGCA boundary.
fish breeding grounds will be sourced from
There
TAFIRI.
collected in Malinyi.
There needs to be capacity building to DFT
Catch
on how to develop fisheries management
Fisheries but no capacity in Ulanga and
plans
forms not filled in (track fish sold in
There are not enough financial and human
market);
resources to introduce BMUs to all the
capacity.
villages that need it. KDC want to use a
Change agent (MLFD to LGA and impart
ToT approach, with villages training each
knowledge);
other.
specific to river basin (not lake or sea);
In Ulanga and Kilombero there is a need
expand beneficiaries of training Health
for negotiating skills on KGCA boundary.
Officer]
is
some
Assessment
data
limited
catch
System
data
used
management
guidelines
on
in
low
BMUs;
How to incorporate BMUs into PAs, as in
75
KGCA
Mr. Hoza was involved in BMUs and
others in MLFD may not be conversant
with BMUs – just adopted concepts from
PFM and WMAs
Need VICOBAs to make BMU sustainable
Enabling
Marketing
of
business
inexperienced in negotiating contracts.
Environment
Investment
is
forest
very
products
limited
a
and
challenge;
Lack
capacity
in
value
addition
and
processing of fisheries resources
therefore
collection
from
fisheries
to facilitate market dynamics. Council
staff needs capacity to enhance enabling
no
business environment
infrastructure foreseen to facilitate markets
revenue
Infrastructure remains biggest obstacle
Revenue
Poor
collection
districts, at least Rufiji collects 60% own revenues
in
all
Revenue collection is weak
Revenue collection is weak
Monitor licenses and revenues in forestry and
Monitor licenses and revenues in forestry,
Some limited monitoring of fisheries
fisheries
fisheries and resident hunting
catch data at one site; monitor license
from natural resources but even here it could be
higher
M&E
and revenue from forestry, fisheries and
resident hunting
Stakeholder
No platform
District Advisory Board for WMA
District Advisory Board for WMA
management
Every LGA should have a business council but it
No platform
No platform
seems they are not working. Most persons are
Every LGA should have a business council
Every
aware of TCCIA.
but it seems they are not working. Most
council
persons are aware of TCCIA.
working. Most persons are aware of
LGA
but
should
it
have
seems
a
they
business
are
TCCIA.
76
not
5.3. Role of the LGAs:
Regarding CBNRM, the role of the LGAs is to support the Village Councils to establish
and embed CBNRM units, and implement Village Land Use as well as CBNRM plans as
an on-going activity by the District Facilitation Team (DFT).
It is their relevant technical function to guide communities to plan, and then to
supervise, support, monitor and consolidate their activities, guided by sector policy and
the D x D processes. The DFT then mainstream the community needs and plans in the
District Development Plans (DDP) and to ensure this is participatory, they use the LGA
planning tool called “Opportunities and Obstacles to Development” (O&OD). This
processes is a Participatory Rapid Appraisal (PRA) tool for bottom-up planning.
However, the O&OD process is cumbersome, protracted and costly and there is no
guarantee that the Village Development Plan (VDP) will be accepted by the District
Councils. Often, unless the Village Government involves local Councillors or WEO, to
lobby on their behalf, communities can be disenfranchised and political agenda
override the allocation or prioritization and top-down decisions prevail as to what
enters the DDP. The low political priority accorded to NRM is evident in that, NRM
budgets are often less than 0.5% of the district funds, yet as shown in SWMP, NR
could contribute more than 45% of district economy. The allocation of such low
importance and therefore of resources to NRM, suggests perhaps a low perception and
appreciation by the political leaders of the value of NR to poverty reduction.
It is the District Councils who will have to address the technical staff requirements
(and funding) to support future field implementation. The District Executive Director
(DED) is the administrative arm of the DFT, the warrant holder and oversight
supervisor that the DDP is implemented as approved by Council. Normally for NRM
projects, the DED delegates the coordination to one of the NRM officers as District
Focal Point (DFP). The districts are not fully staffed in all the areas of NRM
specialization, and there is not always at a senior or village extension level sufficient
capacity to ensure quality coordination. Besides, all the officers at district level have
multiple tasks, often addressing other (non NRM related) duties assigned by DED or
Council. The level of seniority is also an important factor; if NRM officers are not high
in the seniority rank, this is likely to further affect their capacity to assume a proactive
role, especially when it comes to lobby the Council for resources for investment in
NRM. In addition to providing extension services to communities on NRM, districts are
also often called upon to manage government NR reserves in protected areas where
central government staff are few (eg forest reserves). Despite these multiple roles
districts are provided limited resources to carry out their responsibilities. In the
forestry sector harvesting licenses are issued and royalties collected by districts
however the only revenue that remains locally is the 5% cess, or surcharge, that they
are allowed to levy on the royalty. This is a very small sum! Reforms in the natural
resource sector that have resulted in greater rights to communities has led to greater
potential for revenues for villages but with no parallel increase in district revenues.
Where for example 25% of hunting revenues is returned to the District, Councillors
often allocate this to other priority areas, and not at source. This situation has
sometimes been blamed for making districts uninterested in promoting CBNRM.
5.3.1. Coordination and communication
In principle, the DED is responsible for all internal coordination, mainly through the
CMT meeting, which takes place once per month and includes all the Head of
Departments (HoD). Some of the DEDs have short management meetings with their
HoDs every Monday morning and others have “prayers” every morning. People use cell
phones and landlines to talk to each other, but most will drop in or pass by the
office/desk to quickly consult each other. There is a system of folders with documents
that circulate and/or need to be signed, pushed through the offices by office helpers.
5.3.2. Inter level connections
The district communicates to the Regional Secretariat directly to the RAS if it needs to
report on progress or address issues. The district level staff does not feel much need
for the RS support apart from fulfilling the statutory requirements and in case of major
conflict such as was the case in Kilombero with the pastoralist invasion.
The district communicates with the communities at ward and village level through the
WEOs and the VEOs, through mobile phone, letters, circulars and directives. All
information coming from “below” is first registered and directed according to topic to
the relevant departments. In the case of the CBNRM, the DFT members mostly directly
interact with the villages while taking along the WEOs and VEOs in the process. The
councilors are also claiming to connect between the council and the communities.
5.3.3. Inter departmental
In NRM related issues the District Land Natural Resources and Environment Officer
(DLNREO) is responsible for coordinating amongst the concerned departments. Next to
this official, there is another called District Environmental management Officer (DEMO)
who is responsible for the implementation of the EIA and liaises with the NGOs,
VEMCs, and the community. The District Community Development Officer (DCDO) also
collaborates with CBOs/NGOs and FBOs to plan for and implement community
development activities. VICOBAs are being introduced and supported by the DCDO.
In Kilombero instances of collaboration on patrols were encountered with regards to
the Kilombero Game Controlled Area (KGCA) where rangers from the Udzungwa
National Park, under TANAPA, collaborated with the KGCA Manager and staff from the
mobile Anti-Poaching Units of the Wildlife Division.
5.3.4. Support to lower levels
Support to lower levels varies per sector. Some sectors do regular visits and support
activities while others have no budget for doing field visits. In the case of NRM there is
no budget unless from the project. Therefore, the NRM support to lower levels is
directly linked to the presence of projects.
78
5.3.5. Stakeholder management
Though the notion of stakeholder management exists, most districts do not find the
time or the priority to organize stakeholder meetings more than once a year or once in
every 2 years. Only for the WMAs in Kilombero and Ulanga a more formal interface
structure exists, namely the district advisory board, which address issues related to
the WMAs.
5.3.6. Enabling business environment
The district staff that is supposed to be expert in local economic development and
market development etc. is limited to the cooperative and the trade officers. Others
that are indirectly involved are the economist from the DPLO office, and the treasurer.
These officials have not been prepared for the creation of an enabling business
environment, which includes ensuring relevant infrastructure such as electricity, water
and roads, regulatory services in the form of by-laws, permits and licenses etc.
Currently, the councils do not know very well how to deal with the dilemma of
enhancing revenues while also being conducive to attract investors. Without knowing
the businesses, or business environment, the council risks to overburden them and
obstruct them from further growing. Though this is crucial for the further development
of CBNRM, it is difficult for the project to invest capacities regarding this issue, since it
is a national problem, which first need to be addressed at national level.
5.3.7. Revenue enhancement
The district does not invest in the collection of revenue of CBNRM, which means they
have to enable the WEOs and VEOs to go and collect the revenues, which is not
possible if they don't have transport or fuel for their transport means. Currently,
revenue is mainly being collected from agricultural cess and property (land rent) tax,
while there is quite some potential to collect from fish and other natural products
(charcoal). The districts don't have a thorough of these principles and dynamics as well
a way to reinvest the taxes for services and transparently inform the public on what
happens with their tax so that are more willing to comply.
5.3.8. Conflict management
There is this general feeling of disconnection and disempowerment regarding disputes
and conflicts resulting from pastoralist invasion, boundary disputes and volatile
investors at the district and lower level. Despite years of commitment to the process of
land use planning, the communities are overruled by government directives (eg.
pastoralists’ invasion in Rufiji, investor’s change of crop in Rufiji, border with Selous for
the approval of the WMA in Rufiji). The LGAs do not seem to take a stand for the
communities, but passively wait till the project is making an effort by advocating
through its connection in the MNRT.
5.4. Governance:
The district council is at the spill of all the CBNRM activities and therefore requires
strong capacities in interconnecting between higher (region, line ministries and PMO-
79
RALG) and lower levels (WEOs, VEOs, village council and CBNRM committees) as well
as with civil society and private sector. It also needs to support the lower levels to
enable them playing their role. This calls for especially strong skills in amongst others
facilitating, negotiating, networking, mentoring, coaching and brokering skills as well
as technical insights. However, the emphasis in capacity building within the LGA
system seems to be on more sector specific capacities.
At the council level the councilors also play a specific role especially regarding the
approval of the budget (allocation to NRM) and the prioritizing of the district
management plan. In some CBNRM cases councilors are also involved in resolution of
conflicts. However, in general, the councilors have been hardly informed or involved in
the CBNRM process, while their support could be crucial for increased district support
to the process.
Regarding access to Information, creating Voice for the communities, Influencing
decisions and Sanctions (IVIS), the LGAs can play only a limited role. The
communities currently depend fully on the willingness and commitment of the DFTs to
be informed and supported in the whole process. This potentially unfair situation could
be addressed by involving civil society as service providers, whistleblowers, social
accountability monitors, and advocacy players. See chapter 7 for more details.
Across the institution (from Ministry to the village committees and vice versa) there is
an issue of scattered documentation and information storage and incapability of
sharing. In the digital era, one would expect to have solved this problem at least at the
highest till district level, but even there it is difficult to get easily access to key
documents, studies and basic information. At district level, the office staff, involved in
registration of documents and their storage, needs to have a minimum standard of
education, which is currently often NOT the case. At lower level, there is need for
availability of the basic documents, storage space and clear responsibilities for who is
to provide the information to whom.
One of the biggest obstacles for communities to claim their rights, e.g. in case of
intrusion by pastoralists or the enforcement of their land use plan when investors are
brought in by RUBADA, or the park rangers are entrenching on village land, is the very
weak mechanism for law enforcement. The current system of village land council, ward
tribunals and primary courts at the district are not functioning or being misused for
personal gain. The absence of paralegals or qualified staff at lower levels is one of the
reasons, but also the commitment of the district level support to these lower levels is
insufficient. It is often the DC, who will call upon the security committee, who is
solving these problems. This is not the ideal situation considering the political and not
always impartial stand of the DC.
80
6. Lower level (Ward, village and CBNRM)
At ward level: The Ward Development Committees approve the inclusion activities,
including NRM into the Village Development Plans (VDP). However, they are motivated
by political aspirations of the Councillor or local MP, and sometimes must assure
alignment with party manifestos. Often, NRM is seen as a low priority and its
contribution to incomes, livelihoods and poverty reduction are often taken for granted,
that NRM projects get relegated as low priority.
At village level, The user groups all compile their various needs and plans into the
village development plan (VDP), supported by inputs from the relevant participatory
processes of: O&OD, VLUP and CBNRM management plan. Here they must compete
during the Village Assembly meetings for priority, given that resources are limited, and
often NRM are seen as “God Given”, they will always be there and therefore afforded
low political priority by the village community as they are not perceived as “poverty
reduction investments”, unless the initiatives are related to Income Generation
Activities (IGA) that can produce revenue streams for the community. The village
Council, supported by the Village Natural Resource Committee (VNRC) and DFT, is
supposed to backstop and protect the rights of the NR CBOs. The DFT are also
supposed to facilitate both the LUP and O&OD process so that, amongst others, the
NRM matters enter the VDP and are mainstreamed in the DDP.
Identified issues can be listed as follows:

CBNRM: VNRC and standing committees, CBO etc. no clear guidelines on how
NRM committees are structured and how reporting should be done to village
council eg. AA reports to VNRC or VEC or the VC ? Forest committee or existing
committee?
There remains uncertainty and confusion with regards to the roles, responsibilities and
mandates of the different committees under CBNRM. The reason for the confusion
stems from the fact that the committees are called for under differing legislations. The
Village Council (VC) itself is established under the Local Government Authorities
legislation from 1982. The VC is required to have three standing committees and is
allowed to establish other committees on a needs basis. All the village committees are
sub committees of the VC with reporting requirements to the Village Council, which
itself is led by the VC Chair and the Village Executive Officer is the Secretary.
The Forest Act provides for a committee at village level to support the VC to manage
the Village Forests. The Forest Act does not insist that a new committee be established
to fulfil this role, rather, it simply recognizes that a committee either existing or to be
established will play this role. Beginning in the late 1990s the donor funded projects,
such as the Danida funded PFM, proceeded to support the establishment of Village
Natural Resources Committees (VNRC) that would be able to manage village forests.
81
When the Forest Act was enacted in 2002 these previously donor supported project
VNRCs were formalized under the Act.
In 2004 the Environmental Management Act was enacted as a framework legislation,
superseding all other legislation on environmental matters. The EMA required that a
Village Environment Committee be established as a mandatory committee at the
village level. The resulting plethora of legislation regarding committees at the village
level has led to multiple committees with varying, but nonetheless, overlapping roles.
The involvement of donor funded projects has also meant that, instead of VNRCs being
converted into VECs, some VNRCs have been so well facilitated and supported, that it
has led to the VNRC being better supported than the Village Council itself. To date the
reporting line between the VNRCs, VEC and the VC has remained confused. In the
project area it was observed that the VNRC and the VEC had been combined into
VNRECs (i.e Village Natural Resource and Environment Committees). In all villages
visited it was observed that the VNRECs were reporting directly to the VC, acting for all
intents and purposes as a standing committee of the VC. Reporting from the VNRECs
was to the VEOs in all the cases encountered in the field.
The exact role of the VNREC with regards to managing natural resources in the village
is not clear. In many cases VNRECs are acting directly as managers, involved directly
in patrolling, monitoring, licensing and sometimes even harvesting. In other cases
VNRECs are less directly involved in managing, instead overseeing the functions
assigned to other villagers. As part of the VLUP process Village Land Use Management
Teams (VLUM) are established at the village. These VLUM Teams have in many cases
begun to act as standing committees of the VC on land issues. The permanent
establishment of VLUM Teams is not a requirement of the VLUP guidelines and neither
is a provision for VLUM Teams made in the Village Land Act. The WMA regulations
further add to the confusion by requiring a CBO to be formed for the purposes of
establishing a WMA. The regulations require that the VC request the Village Assembly
set aside an area for a WMA and concurrently agree to the establishment of a CBO to
manage the WMA. There is no requirement in the WMA Regulations for the CBO to
report to a VEC, VNRC, or VNREC. In the project area it was observed that CBOs were
reporting to the VC but not necessarily to the VNREC. There were also some
complaints that CBOs were acting as “governments” within the WMA areas.

Compensation for implementation of land use plan (eg. Kibegere), no process
or funding to compensate
One of the challenges of implementing a VLUP is the issue of compensating villagers
for land that has been reassigned to another land use. This situation was found to exist
in Kibegere Village in Kilombero District where, because the VC did not have resources,
a villager had not been compensated for relinquishing his land. As a protest the
villager proceeded to bury his relative in the area that was in dispute, converting it into
a cemetery. In many villages, compensation is paid through providing alternative
cultivation plots but the threat of not having adequate compensation always exists.
82

No capacity to approach the use of resources (business and harvesting plan),
potential revenue etc. price setting
The ability to convert natural resources into benefits represents a package of capacities
that are lacking in the districts. Most district council staff, and therefore stakeholders
at lower levels as well, are missing information on natural resource stocks. Inventory
data tends to be collected by the central government level. Wildlife census data is
collected almost exclusively by Tanzania Wildlife Research Institute (TAWIRI) but this
information is not collected in a routine and regular manner. The information from the
Kilombero Valley is now almost 5 years old and probably needs updating. TAWIRI data
from the Rufiji probably don’t exist. In any event, DGOs and lower level staff have not
been introduced to TAWIRI data and have not been shown how to interpret it.
Similarly, TFS possesses the national forest inventory data called NAFORMA. This data
has not yet been made public and therefore DFOs and lower levels have not been
made aware of this information and how to use it. MLFD has been undertaking Fish
Frame Surveys, apparently such a survey has been done for the Kilombero River in
2009 but the information remains with the ministry and has not been shared. Without
reliable information on stock it is impossible to make a harvesting plan.
All of the
CBNRM guidelines require a stock assessment to be undertaken but in reality such
assessments are rarely done in any detail. Knowledge of the stock also allows a
calculation to be made of the allowable harvest, which in turn leads to determining
how much resource can be offered to the market. These capacities are lacking at the
district council and at the lower levels. The capacity to be able to understand these
ideas is important to be provided to ward and village leaders since in the end the
villagers are the owners of the resources.
Beyond the technical capacity required to harvest and trade in natural resources there
is an urgent need to strengthen capacities at district and village level to undertake
business planning. This type of capacity includes knowing traders and markets and
regulations that must be fulfilled in order for traders to carry out their activities.
Villagers are currently selling forest produce for the royalty rate, not comprehending
that they are allowed to sell at a market rate, which should be higher and more
beneficial. In wildlife the trophy fees are set by the WD itself.

Negotiating and contracting capacities
Similarly to business planning, villagers also require to understand negotiation
strategies. At present villagers remain completely dependent on district staff to assist
them with contract negotiations. This situation sometimes involves risk because district
staff themselves may not be sufficiently knowledgeable about market dynamics and
how to negotiate favourable contract terms. The reliance on district staff is risky also
because traders are often constituents of the council and may be patrons of
councillors. Putting the negotiations of villagers in the hands of district staff provides
opportunities for conflict of interest.
83
The WEOs and VEOs have a specific role to play in empowering CBNRM at the
community level as explained in chapter 3. They depend for the implementation of
their roles on the funds from the LGAs: 40% of the LGA capital as well Capacity
Building Budget. In general, this money is hardly sufficient for the tasks allocated to
this staff, especially regarding monitoring and revenue collection.
84
7. Civil society
All
governments
have
internal
mechanisms
in
place
to
promote
or
ensure
accountability of public servants. These can be related to:

Political mechanisms such as separation of powers, the legislature, and
legislative investigative commissions;

Fiscal
mechanisms
including
formal
systems
of
auditing
and
financial
accounting;

Administrative mechanisms, for example hierarchical reporting, public service
codes of conduct, rules and procedures regarding transparency and public
oversight;

Legal mechanisms like corruption control agencies, ombudsman, and judiciary
(Gaventa and Goetz, 2001).
Internal
(government)
and
external
(citizens/civil
society)
mechanisms
of
accountability can and should be mutually reinforcing.
One way to visualize the accountability relationships is given in the figure 3. The added
value of this model is that it includes the enabling environment of social accountability.
It also highlights the key elements of each of the key factors.
Figure 7: Social Accountability Model7
The model describes 4 key factors to address in order to improve the social
accountability situation:
7
World Bank Source book on Social Accountability, 2005
85

the bridging mechanisms between the citizens and government in the
demand and supply relationship,

the willingness and capacity of the citizens to demand for accountability,

the willingness and capacity of the government to respond and be
accountable,

the enabling environment for citizens’ demand and government to supply
accountability.
Ideally, Social Accountability is focusing on the demand as well as the supply side
of accountability and the bridging in between.
Secondly, the framework emphasizes the core elements of social accountability
by looking in particular at the following elements:
 Access to information
 Voicing for citizens
 Influencing
 Negotiations and Sanctions
 Enabling environment for the above
And thirdly, the Social Accountability Monitor model is reviewing and analysing at
national as well as local level the following steps of the service delivery cycle:

Planning and resource allocation

Expenditure management

Performance management

Public Integrity

Oversight
7.1. Civil Society and social accountability in Tanzania:
Civil society in Tanzania is still in its infantine shoes. In 2000, the Government of
Tanzania issued a national policy on NGOs intended to provide for a new institutional
and legislative framework, which was translated into the NGO law [Act No.24 of 2002].
Civil Society Organizations (CSO), nowadays, exist in a multitude of forms and legal
entities with various purposes, situated and operational from all levels. The most
common forms are the following:

NGO networks and apex organizations

Membership based organisations, CBOs and NGOs

Voluntary and self-help groups, community based groups and societies

Social movements and networks of organisations, professional associations,
foundations and non-profit companies

Faith based organisations

Trade unions

Private sector associations

Employers’ associations

Co-operatives

Research institutes working in economic and policy analysis
86

Non-profit media organisations

Multi-party organisations
The majority of CSOs are advocacy, service delivery or member representative
oriented. Most advocacy organizations are based in Dar es Salaam. At local level, the
majority of organizations are service delivery oriented.
The relationship between Civil Society and Government has for a long time been
characterized by mistrust and suspicion. Currently it is improving, evidenced by
increased communication, interaction and trust. Especially at national level there
seems to be more openness: CSOs are invited to participate in policy influencing
working groups and are consulted in the process for Mkukuta, MDGs, GBS and sector
working groups. At local level, however, the LGAs still tend to see the NGOs as
briefcase organizations, which are there for attracting funds from donors for personal
gain of the director and associates only, while the local NGOs accuse the LGAs of
corruption
and
mismanagement
of
public
funds.
Through
the
use
of
Social
Accountability Monitoring (SAM) and other tools, this situation can be turned around
into a WIN-WIN relationship as some CSOs have proven 8.
Regarding the social accountability factors of access to information, voice and
influence, negotiation and sanctions, the following can be said.
Access to information:
Despite the rapid growth of social media and the expansion of the digital and mobile
phone evolution into Tanzanian society, access to information remains a huge obstacle
to communities, especially in rural areas. On one hand, in most cases the LGAs are not
willing to share information as part the cultural resistance within government as part of
the socialist heritage. Through campaigning a number of CSOs have been able to
convince PMO-RALG of the necessity to provide the citizens with relevant information.
However, despite the circular from PMO-RALG to the Regional Secretariats to direct the
LGAs to provide Civil Society with requested information according to a list of 20
different documents (including MTEF, expenditure, etc.), the impact has been minimal
so far. On the other hand, the LGAs are also not always capable of producing the
requested information due to lack of data, bad documentation or record keeping,
inability to manage the council systems properly, etc. Information is mostly not
available in the right language, or written and presented in a very inaccessible way.
The information collected at lower levels for monitoring purposes is channelled to the
higher levels without keeping copies at each level. At national level, obtained data are
aggregated, mostly according to the needs of the Ministries at the National level. The
end reports have lost the details, which are crucial for the lower levels. The lack of a
central point, at national or regional or district level, where all gathered information is
stored, arranged according to relevance for each level and made accessible is
8
Forum Syd, Policy Forum, Sikika and ANSAF
87
hampering information availability. Especially NGOs, CBOs, lower level leaders, and
councillors who are supposed to inform the communities do not have access to the
information themselves.
Voice:
At national level, there is currently some space for the “citizen-state dialogue”, like in
the Constitutional Review Preparation Process, as well as in public debates in the
media and the newspapers. CSOs are invited to participate in policy making as well as
technical working groups and task forces. The biggest challenge for the Civil Society
here is to ensure relevant representation of the citizens they are representing. At local
level, there are rarely opportunities for CSOs to present concerns to or discuss issues
pertaining their target group’s daily lives, with the LGAs. Though formally the CSOs are
allowed to present their case through the statutory meetings (mainly via WDC and
chair persons) in reality most will directly ask for an appointment with the DC or meet
officials informally at the local pub.
Influence:
Through the dialogue platforms as well as their relationship with Parliamentarians
CSOs are making a difference in policy influencing. Their most used strategy is to build
cases by using their members or consultants to collect evidence on specific topics from
all over the country and present this evidence in a variety of platforms as well as the
media and the parliamentary standing committees. The launch of publications and
radio programs further are used to enforce the concerned campaign.
Negotiations/Sanctions:
So far the Civil Society has not been very successful in enforcing promises and
agreements with the government. When the doctors went on strike one year ago
because of unfulfilled promises and mismanagement by their Ministry, the movement
leader was tortured and left for dead in the woods of Dar es Salaam. Teachers have
been rarely successful in their actions to claim for unpaid or delayed salaries.
Newspapers have been banned for 2 months (Wananchi) as well as TV spots (Policy
Forum) for supposedly asking critical questions. Impunity and inaction towards corrupt
leaders are still the general status quo in Tanzania. However, the media and the
middle class of Tanzania are less tolerant for such practices and it is foreseen that
towards election time more scandals will be used to discredit each other amongst
political parties.
Capacity gaps and challenges of CSOs in Tanzania:
As said Civil Society is just beginning to become a credible partner in the policy arena
of Tanzania at national. A growing number of advocacy organizations have established
their position at the negotiation table with government. Their biggest challenges are to
link to the lower levels and represent the communities, to ensure core funding and
88
become more sustainable in their strategy, and to maintain a joint approach in
addressing/confronting
government.
Their
internal
organization
often
needs
strengthening in order to ensure timely accountability towards donors as well as to
their own constituencies. Smaller NGOs/CBOs struggle even more with these issues.
They are easily overruled and not empowered enough due to lack of information on
acts and regulations and not informed enough on their rights or ways how to enforce
their rights. Many donors are hesitant to fund similar organizations, because of the risk
for failure, while at the other hand the only way for these organizations to grow is
through substantial initial capacity building support and through learning by doing.
7.2. Civil society and Natural Resource Management:
In the field of Natural Resource Management and related environmental sectors, a
growing number of CSOs are active in Tanzania. The most relevant for this study are
the following:
Table 19: overview of relevant CSOs
National level
Service
delivery
oriented
organizations:

WWF
District
level
level
CSOs/CBOs
Research
Network:
Networks:
Rufiji:

UDSM
UNGO
KIUNGO
 JUHIWA

SUA
Institutes:
(carbon
NGUMWA (WMA)
UNGOU
(RUMAKI,
Coastal
Regional
trade,
 MUNGATA
forests,
Prof.
(WMA)
AAC)
 RUBEYA (WMA)
Munishi-

TFCG
 Mpakaya
KIVEDO)

Mjumita
Conservation

TAWIRI

MCDI
group

TAFORI

JUVIHUMTU
(CARE)/UMAKI
Advocacy
oriented
organizations:
Kilombero:


TNRF

MANET (based in
ILUMA
(CBO/WMA)

CHAWAKI
Morogoro)
(fishermen’s

Haki Ardhi
association)

Traffic

KIVEDO,

PELUM

UMAKI,

Mama Misita
(project/WWF?)

beekeeping
Mang’ula ?
Possible
mechanisms:
funding
Ulanga:

ILUMA
89

FCS
(CBO/WMA)

TFF

MIBA (NGO)

TWPF

KVOC (NGO)

Projects

Kivukoni Fishery
SACCOs

SEMA (NGO)

Ujamao, (CBO)

MASEC (?)

SEGTO (CBO)

CEMDO, (NGO)
7.3. Donors and funding mechanisms:
Through the years a considerable number of donors have invested in the Natural
Resources and Environmental sectors either directly or through other organizations.
The most important ones that emerged during the assignment are: WWF, IUCN, EU,
BTC, Norwegian Embassy, DANIDA, Eastern Arc Mountains Conservation Endowment
Fund, Tanzania Forest Fund, Tanzania Wildlife Protection Fund, FINNIDA, KEPA, Finnish
Embassy, UNDP (fishery SACCOs).
7.4. Role of CSOs in CBNRM:
CSOs could potentially play an important role in all four key elements of social
accountability:
1. Access to information, leading to improved awareness of CBNRMs and villagers
on their rights AND responsibilities:

Production of popularized guidelines of CBNRM as well as, by-laws, acts and
regulations in Kiswahili

Dissemination of the same guidelines, by-laws, acts and regulations, taxation
and Mama Misitu newsletter

Use the TFS mobile vans with videos (road show)

Training of local drama groups on specific themes/topics to perform on market
days and schools

Development of community radio program

Develop “how to claim my rights” manual

Environmental education to schools

Training of VEC/VNRCs, Village council in SAM

Training of village leaders and VEC/VNRC in negotiation and contracting
techniques

Creation of information Centre (or CRCs sees Forum Syd) at ward/district level
(with paralegals).
2. Voice, leading to better representation and improved active participation in the
village, ward and council meetings.
90

Regular village and ward meetings and follow up

Bring in community radio recordings

Ensure connection/communication/involvement of all relevant leaders
(including pastoralists) between sub village, village, ward and district levels

Support CBOs in the implementation of SAM
3. Influence, leading to better informed decisions as well as less conflicts

Monitoring through SAM and Dashboard tools

Create district dialogue platform (environment and natural resources) with LGA
and private sector

Engage with the media for launching of campaigns and advocacy issues

Collect evidence and feed into regional and national civil society processes

Ensure representation of the local CBOs in national dialogue
4. Sanctions leading to enforcement of the rule of law and respect of people’s rights

Introduce Tanzania Forest Justice project at all levels

Develop similar mechanism for Wildlife

Train the local Police and other law enforcement institutions to respond timely

Strengthen village land councils and ward tribunals, paralegals and primary
courts

Collect evidence of local issues to feed into national debate/dialogue and policy
influencing

Build up cases/campaigns to present at national level (to advocacy networks as
well as to parliamentarians)
7.5. Possible options for strengthening Civil Society in CBNRM related
approaches:
Option 1:
Call for proposal to select several CSOs to form a consortium: one lead and 2-3 others
with specialization in WMA, BMU, PFM and VICOBAs.
Core funding for 3 years for each and funding of the following capacity building
activities:

Capacity building in how to conduct IVIS activities (see chapter 7.4)

Organization of dialogue platforms at different levels (ward and district)

Conflict mediation, rule of law and Tanzania Forest Justice (land right monitors)

Training in SAM and Dashboard

Service delivery of VLUPs and CBNRM

Whistle blowing

Support to set up and embedding of VICOBAs and link to CBNRMs

Strengthening
national,
regional
and
local
networks
in
advocacy
and
membership management (MANET, TNRF, TFCG, MJUMITA, UNGO, UNGOU,
KIUNGO).
91

ID/OD of CSOs (financial management, project management, leadership,
proposal writing, facilitation skills, GET Real training (?) and advocacy)

Support in linking to funding agencies (FCS, TFF, TWPF, etc.)
Possible service providers
Mjumita VLUM and PFM, WWF for WMA and BMUs, and CARE for Vicoba’s
MJUMITA will be the spill of the program in this option, supporting/strengthening other
organizations and also providing services it self.
National level:

TNRF, WWF, MANET and Policy Forum: advocacy role

MJUMITA (in collaboration with TFCG?): managers of project: SAM, Dashboard
and Forest Justice introduction to all.
Regional and district level:

MJUMITA: set up of platforms, set up whistle blowing mechanism, M&E
Village/ward/CBNRM level: MJUMITA/WWF:

Implementation of VLUPs

Connection to the village councils, VEC/VNRC/CBO committees

Training of committees in M&E

CARE: Introduce VEC/VNRC to VICOBA and ensure link to CBNRM
KILORWEMP:

Development of similar tools as Dashboard, and forest justice for wildlife and
fishery

Introduce the newly developed tools to the CSOs to further disseminate
92
Option 2:
Call for proposal to select several CSOs to form a consortium: one lead and 2-3 others
with specialization in WMA, BMU, PFM and VICOBAs.
NO core funding but only capacity building funding for the following:

Capacity building in how to conduct IVIS activities (see chapter 7.4)

Conflict mediation, rule of law and Tanzania Forest Justice (land right monitors)

Training in SAM and Dashboard and other relevant tools

Service delivery of VLUPs and CBNRM

Whistle blowing mechanism

Support to set up and embedding of VICOBAs and link to CBNRMs

Strengthening national, regional and local networks (MANET, TNRF, TFCG,
Mjumita, UNGO, UNGOU, KIUNGO) in advocacy and membership management

ID/OD of CSOs (financial management, project management, leadership,
proposal writing, facilitation skills, GET Real training (?) and advocacy)

Support in linking to funding agencies (FCS, TFF, TWPF, etc.)
Possible service providers
Via UNGO: VLUM and CBNRM and local networks, including CEMDO
The recommendation is to concentrate on Kilombero and Ulanga to pilot a model for
Social Accountability and in Rufiji for VICOBA’s:
Focus is more at regional level with UNGO as starting point. UNGO however will need
strengthening itself (strategic plan, staff introduction to CBNRM and internal
organizational development). UNGO links between national and local levels through PF
on one hand and the district networks at the other hand. It introduces SAM, and
mainstreams DashBoard and Forest Justice within the NRM and Environmental CSOs.
CEMDO could have a specific role for VICOBAs in the 2 districts.
National level:

TNRF, MANET and Policy Forum: advocacy role

Mjumita (in collaboration with TFCG?): managers of project: SAM, Dashboard
and Forest Justice introduction to all.
Kilombero and Ulanga:
Regional and district level:

Connection to UNGO, UNGOU and KIUNGO: communication outreach, training
of trainers, set up of resource/information centre, installation of M&E system,
and set up of data base, monitoring of progress

Use of locally based member NGOs (CEMDO, KVOC, MIBA, SEMA, etc.)
implementation of information dissemination, radio program, organization of
platforms and monitoring, SAM/Dashboard implementation
93
Rufiji:
District and village level:

CARE or WWF: could introduce the VICOBAs in Rufiji
Option 3: Combination of all through FCS and TFF as funding mechanism to manage
the grants to deliver to the locally based organizations including an IDOD budget.
A special “pot” for this program will be provided to FCS to manage it for KILORWEMP.
CSOs have to respond to invitations to respond to calls for proposals by FCS for this
specific “pot”. These CSO have to qualify for the funding according to the regular
standards and systems of FCS. A capacity building organization is recruited to
strengthen the other organizations to apply for funding at FCS and to empower them
in their capacities to play the following roles:

Conduct IVIS activities (see chapter 7.4)

Organization of dialogue platforms at different levels (ward and district)

Conflict mediation, rule of law and Tanzania Forest Justice (land right monitors)

Training in SAM and Dashboard

Service delivery of VLUPs and CBNRM

Whistle blowing mechanism

Support to set up and embedding of VICOBAs and link to CBNRMs

Strengthening
national,
regional
and
local
networks
in
advocacy
and
membership management (MANET, TNRF, TFCG, MJUMITA, UNGO, UNGOU,
KIUNGO).

ID/OD of CSOs (financial management, project management, leadership,
proposal writing, facilitation skills, GET Real training (?) and advocacy)
94
95
8. CB and OD Plan:
8.1. Capacity Building and organizational development:
In order to enhance the capacity of people, teams and organizations in terms of
knowledge, competencies, skills, attitude and behavior, capacity building needs to be
approached from different angles, namely from the technical/sectorial angle to
governance and political angles.
For an organization to perform and operationalize its functions, it needs capable people
who individually have technical knowhow and relevant skills as well as established and
functional processes and systems at organizational level facilitating those people to
perform adequately. The socio-political angle addresses the institutional setting in
which the organization operates ensuring the long term impact and sustainability of
the model.
8.2. Principles9:
The reason for building organizational capacity is to contribute to sustainability,
ownership, improved delivery of services and a sense of common purpose. It can also
enhance institutional flexibility in responding to change, problem solving and learning.
Incorporating certain principles in the design, implementation and monitoring of
organizational capacity building initiatives and programs is critical to successful
capacity building processes and sustainable results.
Eight principles regarding capacity building and organizational development have been
identified to support the conceptual framework of the assignment. These principles are
adapted from existing organizational capacity building frameworks enriched with the
contextual situation in Tanzania.
These principles include”:
9

Ownership and leadership:

Demand driven technical support

Participation

Context specificity:

Evidence based capacity building practices

Results-oriented capacity building:

Institutional versus organizational capacity development in NRM:

Learning and knowledge exchange.
Adjusted from Organizational Capacity Building Framework, USAID and Aidstar Two, Technical brief no2, January 2011
96
1. Ownership and leadership:
For the capacity building to be effective, the organization subject to the capacity
building must own the process and make sure that those who have received
support will be able to apply what has been acquired in insight, knowledge,
understanding, skills and practices. The organization must simultaneously create
an enabling environment for the enhanced capacities to be used so that overall
performance improves. This means that the leadership and decision-makers need
to own the process and are the drivers of progress.
In the case of KILORWEMP, the question is who should be the driver of the
Capacity Building process. Within the Ministry the project falls under the Wildlife
Development section and its wetland unit. While the research and training section
is responsible for the capacity building of the Wildlife Division. At the same time,
fishery is not included in this Ministry.
This scattered responsibility for the different CBNRM units makes it difficult to fully
adhere to this Capacity Building principle.
Therefore, the team advises for the project to ensure that a core group of officials
within
the
Ministry
is
taking
ownership
of
CBNRM,
including
responsible
departments of other Ministries (Livestock and Fishery).
It is well understood that the nature of CBNRM, which transfers benefits from the
government to communities, is not priority to central government to support as a
policy. However, considering the rapidly increasing pressure on land and natural
resources in Tanzania and in anticipation of programs, such as SAGCOT and Big
Results Now (BRN), it is of utmost importance that communities are involved in
the conservation and sustainable management of these resources to ensuring
future livelihoods.
2. Demand driven technical support
The organization needs to work closely and collaboratively with the technical
assistance to identify, participate and endorse the key concepts that are being
internalized so that when the external assistance phases out, the organization is
capable of continuing without hick-ups. When external local, and international
technical assistance is provided, the way the assistance is offered and facilitated is
key to the effectiveness and sustainability of the interventions. The provided
support must directly benefit those who are supposed to implement changes, as a
team, department, LGA or community and also in terms of decreased workload,
recognition for improved performance, status and image, and/or other incentives.
In the case of KILORWEMP, the same situation as described above prevails for the
collaboration with and demand for technical assistance at national as well as
district level. Both at national and district council level there is no clear demand for
the implementation of the CBNRM approach, since the LGAs as well as the
Ministries loose the benefits of current revenue from the natural resources.
However, the technical officials related to NRM at district level seem to be
97
motivated and willing to learn since the project provides for the main budget in the
NRM sector, which allows them to go to the field.
3. Participation
Within any organization, each department and each level has its own roles and
responsibilities and related to those, it has its own knowledge, skills and attitude
requirements. The levels are interdependent. These requirements are formulated
in terms of combined capacities, performance indicators.
Therefore, within organizations the team is more important than the individuals.
Within the teams, individuals complement each other. In addition, the organization
can only achieve its objectives if it is well embedded in the institutional setting,
which is constituted by its dynamic surroundings and other stakeholders. The
organization needs to be able to deal with these power dynamics therefore
requires the skills and competencies to get informed, knows its rights and
responsibilities, claims for accountability, influences decisions, negotiates, etc.
Figure 8: Types of capacity needs at different levels
Source: eMJee Consult 2014
Capacity Building ideally addresses all organizational levels, including other
relevant stakeholders, in order to ensure buy-in and commitment, build real local
capacity and enhance sustainability. Participation of individuals from different
organizational levels in the assessment of capacity needs is therefore required, as
well as in the identification of the gaps.
In the case of this project, the support will be strongly targeted to the relevant
levels, and departments within the Ministry, and adjusted to each level of
98
requirements identified, based on performance issues. Participants will be selected
based on their roles and responsibilities to achieve identified results and their
potential contribution to change.
4. Context specificity:
The selection of approaches, tools and methodologies are based on the context in
which the organization, team and individuals operate, its current level of capacity
and the available supply of capacity building support in Tanzania. The situation
regarding Council management Systems, Human Resources and Council Official
Capacities differ in the three districts. However, related to CBNRM, the technical
capacities are quite similar. Therefore, there is room for a more general approach
for Organizational Capacity Building, meaning that proposed capacity building
packages may be offered simultaneously to the three districts.
The availability of resources, for example the combined approach with the
scholarship program and eventual EU support, may enlarge options for a more
institutional approach (especially regarding M&E).
5. Evidence based capacity building practices
The wide range of possible capacity building practices may not always be working
effectively every where, therefore, the organizational capacity building plan will
build as much as possible on established best practices with proven impact in
Tanzania and comparable situations.
The experience regarding Capacity Building of LGA staff within the LGRP program
has shown that mass-training sessions at national level (130 staff at the same
time) as well as the mechanism with the standardized courses for the councils to
use with the Capacity Building Grants has not been very effective. Most of the
Councils tended to invite the training facilitators to the district location instead of
going to the training centres for shorter periods and for less specific courses. At
the same time, the backstopping support form the Zonal Reform Teams that
passed by the councils on a regular basis to provide tailor made solutions to
problems, has proven more effective.
This and other experiences inspired the team to look at packages and modules
that are tailor-made by existing professional organizations and will allow for
regular support at the locations over a longer period of time. The packages will
consist of a mix and combination of training courses, retreats, site visits,
mentoring and coaching sessions.
6. Results-oriented capacity building:
The starting point for the conceptual capacity building approach will be the
developed performance framework and Theory of Change (as described for each
result area in the baseline study), which provides for the indicators to measure
progress in achieving the capacity building results. Monitoring these indicators,
99
analysing the impact and identifying the lessons learned will determine if the
organization’s capacity building practices were effective.
As proposed in chapter 3.4 the capacity building activities will be monitored
according to certain indicators that have been identified in direct relation to the 3
project result areas.
7. Institutional versus organizational capacity development in NRM:
NRM involves many different sectors and disciplines, which are not necessarily well
aligned and coordinated in Tanzania, especially not at ministerial level (though
better at the LGA level). There is a clear need to address NRM issues from a more
holistic approach, for example either starting from the sustainable wetland
management concept, or ecosystems, so that separate sectors can fit into a bigger
framework to create synergy and impact, due to their interdependence. Therefore,
landscape coordination needs to be integrated into the framework. Hence, the
organizational development will need to be directly embedded into institutional
development of the concerned sector (which in itself is to be linked to the overall
vision) in order to be able to address specific issues from top to bottom and vice
versa.
8. Learning and knowledge exchange.
Most dividends are gained by documenting, disseminating the information, and
applying the lessons learned in follow-up interventions, as well as brokering the
knowledge and sharing this information with others. The gain is two fold:

It creates the possibility for up scaling to other districts through the
scholarship program and other stakeholders.

It provides evidence-based information for civil society organizations and
policy makers in addressing policy reviews.
The project can create learning moments within the project, at district level, at
regional and ministerial level and amongst other stakeholders by organizing yearly
knowledge exchange events at each level.
8.3. Objectives and scope:
The Objective of this Capacity Building/Organizational Development Plan is to
strengthen the relevant units in the MNRT Ministry, Regions, Districts and communities
in the implementation of the combined CBNRM policies for the benefit of the
communities and to contribute to the sustainability of the natural resources.
However, capacity building will not be the final answer to all the issues that the team
has identified. There is equally need for political will and commitment to use the
already available capacities, systems and processes.
The plan is focusing on the current outreach of the KILORWEMP project, namely the
collaboration with the CBC and Wetlands Units within the Ministry of Natural Resources
100
Management and Tourism, Morogoro and Coastal regions, Rufiji, Kilombero and Ulanga
districts, wards, and the villages linked to the selected project sites. However, it is
hoped that the staff at district and higher level will use their gained competencies in
the rest of the district and region and where relevant even at national level to the
benefit of areas and populations outside the project scope.
The project is also currently exploring in which way civil society organizations can be
included in the project support to the CBNRM process, which include those
organizations that can have direct impact on the above-mentioned areas and the
involved stakeholders.
8.4. Role of the project
The KILORWEMP project has the task to ensure that CBC and Wetlands Units within
the Wildlife Division and recently created Task Force at the Ministry, are strengthened
and capacitated to take over the developed model by the project after 4 years.
Furthermore, the project will guide and facilitate the Regional Secretariat, especially
the Assistant Administrative Secretariat for Economic and Productive Sectors (AASEPS), including the RNRO, to provide support regarding CBNRM to the LGAs.
Role at national level:
•
To motivate and capacitate the WD department through the CBC and Wetlands
units to take the lead in the CBNRM policy implementation
•
To guide and facilitate the RS support regarding CBNRM to the LGAs
The project teams based at the district level will have to:
•
To capacitate the LGAs and DFTs to support the lower levels in the
establishment and management of the CBNRM units
•
To facilitate the support to national, regional and district levels CSOs to ensure
Social Accountability regarding CBNRM
The project team itself will also have to provide substantial capacity building support at
district level and lower. Therefore, the project staff itself also need to be strengthened
in capacities to mentor, coach, facilitate and strengthen others.
The project is currently assessing the scenario of expanding the existing project
management team with additional technical assistance in order to do so. The
management of the capacity building activities as well as the support to the CSOs will
be ensured by the project management at national level with delegated tasks to the
district project teams related to the regional and district level activities.
At the same time, it needs to be understood that the project has its limitations and it
will not be possible for the two BTC projects to absorb all the recommended activities.
Another limitation is the setting in which the project operates within the Ministry and
therefore, the project will need to find the appropriate mechanism and platforms to
engage with other stakeholders and interested parties to address the landscape
101
approach.
Due to the enormous complex situation and involvement of many actors
the project has decided to focus on specific target sites with the goal of showcasing
that CBNRM can deliver actual benefits. Though the capacity building, which is needed
to make that goal happen, will also be beneficial for other sites, the project is not able
to go beyond those limits. The institutional and organizational approach of the
presented Capacity Building Plan is to serve the Ministry and the LGAs (with some help
of the KILORWEMP project) in their planning for capacity building in the future.
8.5. Strategy and approach
8.5.1. The strategy
The strategy is to address organizational capacity building as a package at each level.
Based on the identified performance gaps for each of the result areas, the related
actors, who play a role to address these performance gaps, and their capacity
weaknesses are the basis for the identification of the capacity building activities. The
combined improved capacities will address the specific performance gap for that result
area.
The rearrangement of all CB activities per actor then constitutes the basis for the
packages that are developed into a capacity building plan. The packages will be
delivered in three phases:
Phase 1: Short term

To build commitment at national level for CBNRM and sustainable wetland
management mainstreaming

To keep/revive momentum at local level (quick wins)

To respond to demand for concrete actions

To start build relationship with civil society
Phase 2: Medium term

To deepen and expand commitment for CBNRM at WD units

To start strengthening CSOs at all levels.

To develop regional level facilitating capacities: AAS EPS and RNRO

To strengthen capacity of RC and RNRO in sustainable conflict management

To mainstream wetland guidelines throughout the district

To build capacity of sector staff at all levels

To change mind sets of district teams in facilitating and empowering lower
levels

To empower lower levels in technical capacities as well as power related
negotiations

To develop strategy to further explore the 7 commodity chains
Phase 3: Longer term

To further embed CBNRM in the Ministries

To follow up and anchor capacities along the organizational lines

To identify and address remaining capacity gaps

To address result area 2
102

To support CSOs in playing their role of service provider, watchdog, social
accountability monitor and advocacy organization.
103
Table 20: Capacity building approaches and activities on short, medium and long term per BI level
Short-term
BI Levels
National level
CB Outcome/approach
Medium term
Activities
CB Outcome/approach
Long-term
Activities
CB Outcome/approach
Activities
Outcome:
Outcome:
Outcome:
Commitment to CBNRM
Deepen and expand commitment for Further embed CBNRM in the Ministries
CBNRM within MNRT
and create larger commitment of CBNRM
for the government, by expanding to a
larger stakeholder group.
CBC and
Build commitment and
Package
Develop and mainstream
Strengthen the capacity of the
Package 1c
wetland unit
ownership at the Ministry,
1a
M&E system that cuts across
Package 1b
Wildlife Division, Forestry and
and d
through strengthening the CBC
all levels by strengthening
Beekeeping Division as part of
and Wetland Unit within WD, by
the capacity of the Wildlife
the development of a strategic
starting “informally” building a
Division
plan for CBNRM to develop M&E
relationship with the Task Force
of key officials.
Build commitment and develop
Package
Implement strategy to roll
Package 4b
Follow up on implementation of
Package 4b
strategy for the roll out of the
4a
out the SWM guidelines
to e
the SWM guidelines roll out
to 4e
Create understanding for the
Package
Improve the support from
Package 1c
Address policy issues by
Package 1e
importance of the CBNRM
1b
Wildlife Division to lower
and d
strengthening the capacity of
Sustainable Wetland
Management guidelines
Task force
approach, by using programs,
levels
the Ministry to negotiate a
which are high on the national
Strengthen WD to identify
settlement regarding the KGCA
agenda, such as SAGCOT and
obstacles for timely sending
based on consensus and
Big Result Now, as an entry
back the community money
compensation and/or
point for the Task Force to start
collected from CBNRM
resettlement (e.g. shareholding)
developing a more common
with the local communities.
vision.
104
Regional level
Outcome: Strengthened capacity of
Outcome: Mainstreaming of the (to-be)
Regional Assistant Administrative
developed M&E systems for each
Secretariat (AAS) economic and
subsector.
productive sectors, and RNRO
AAS-EPS
Strengthen the capacity of
Package 2a
the AAS-EPS in sustainable
Introducing AS-EPS to success
Package 2a
stories elsewhere.
conflict management
RNRO
Strengthen the capacity of
Package 2b
Strengthen the capacity of the
the RNRO in CBNRM
RNRO in M&E of CBNRM Units
management and
per sector
Package 2b
sustainable conflict
management
RS (RC/RAS/
AAS EPS
Strengthen the capacity of Package 2c
Strengthen the capacity of the
the RS (RC/RAS/AAS EPS) to
RS (RC/RAS/AAS EPS) to
organize
for
organize a platform for regular
between
dialogue between stakeholders
regular
a
platform
dialogue
stakeholders
Package 2c
and representatives of the lower
and
levels.
representatives of the lower
levels.
District level
Outcome: Respond to demand for
Outcome: Strengthen the capacity of
Outcome: CBNRM integrated into District
concrete actions
the DFT to help committees to prepare
Development Plans
harvesting and management plans and
other elements required for the
preparation of the approval for NR
exploitation
DC/ DED
Support the development of a
Package
To understand the benefits
comprehensive CBNRM
3a
of CBNRM units, the
Create NRM dialogue platform
relationship between
by organizing stakeholder
strategy, involving all relevant
Package 5a
Functional Business council and
Package 5d
105
district departments
services to business and the
meetings
revenue enhancement
DED/CMT/DPLO To strengthen a limited number Package
of LGA management staff (staff 3b
To strengthen the capacity of Package 5a
Allocation of funds to NRM
Package
CMT members, Treasurer,
related sectors in relation to tax
5c
and c
DT
economists and councilors of
paid. Enabling environment to
the
relevant standing
attract investors and traders
the
committees to understand
has improved
management systems such as
the economic mechanisms
Epicor,
and the implications of
from
the
DHRO,
offices)
DPLO,
in
utilization/application
Plan
Rep,
of
OPRAS,
Procurement
regulations
and
revenue collection as well as
other
the
will
understanding of the link
tools,
project
provide funds to allow the LGA
between economic activity,
staff
taxes and services at LGA
to
use
standardized
the
relevant
courses
level.
as
developed by LGRP.
DFT
Strengthen the LGA in devolving Package
Change mind sets of district
Package 3c
Follow up and anchor capacities
powers to lower levels and to
teams in facilitating and
and 6b
along the organizational lines
3d and 3g
strengthen the capacity of the
Package 3d
empowering lower levels
WEO, VEOs
Mainstreaming of SWM into
Package 4c
district
to e
Package 5a
Strengthen the capacity of DFT
Package
Get insight into business
Strengthen the LGA in devolving Package 5b
and community leadership to
3g and 3h
dynamics to be able to
powers to lower levels of village
ensure participation of
properly advice the CBNRM
governments to take
minorities and relevant
units (via the WEOs, and
responsibility
population.
VEOs)
and c 6a
106
Get insight into business
Package
To strengthen the capacity of Package 3c
Strengthen the village
Package 5b
dynamics to be able to properly
5a
DFT to help the committees
government and committees to
and 6a
and 5b
advice the CNRM units (via the
involve service providers
deal with Conflict management,
WEOs, and VEOs)
such as TAFIRI, TAWIRI,
contract negotiation and benefit
UDSM or others to conduct
sharing
stock/resource assessments,
Gender mainstreaming
and feasibility studies
District and village by-laws
Support in the preparation of
the harvesting and
management plans
LGA to improve access to
Package
LGA to improve
Package
Response to CSOs holding LGA
information of the lower levels,
3d and 8c
responsiveness to CSOs
3i
accountable for transparency
as well as civil society
Package 3j
and accessibility of information
Trade officer/
To strengthen the capacity of
Package
Cooperative
Cooperative Officer, Trade
5c
dynamics regarding timber,
investors and traders has
Officer
Officer, treasurer and members
honey, charcoal, trophy
improved
of standing committee of
hunting, photographic
economic and productive
tourism, and fishery
Understand the Business
Package 5c
Enabling environment to attract
Package 5c
sectors to create enabling
business environment and
understand value chains
Lawyer
To formulate by-laws and
Package
Strengthen the involved staff Package 7b
Enhance capacity of the primary
Package
understand the implications
7a
to be able to refer community
court at district level to enforce
7a
To facilitate empowerment of
members to the enforcement
the by-laws
the lower levels
bodies such as the police or
the DC or the PCCB, PPRA,
etc.
107
Chair person
To understand the concept of
Package
Strengthen the capacity to
and standing
CBNRM and the role to play
3c
increase budget allocation to
committee
Package 3c
CBNRM
chairs
Ward level
WEO
Strengthen capacity to
Package
Strengthen capacity to collect
document, record, store, share
3f
revenue
Package 3f
Package 3f
financial management and
and manage and share with
M&E
constituencies
Mainstreaming SWM
Village level
Strengthen capacity to conduct
Package 4d
Outcome: To keep/revive momentum at
Outcome: Empower lower levels in
Outcome: Identify and address remaining
local level (quick wins)
technical capacities as well as power
capacity gaps
related negotiations
VEO
Strengthen capacity to
Package
To strengthen the capacity of Package 6b
To empower the committees to
document, record, store, share
3f
local communities,
own the process and manage
and manage and share with
committees and leaders in
the units
constituencies
terms of knowledge and
Package 6b
skills as well as confidence
and empowerment for
negotiation and contract
management.
VNRC/VEC/VGS
Technical training for VGS
Package
Strengthen capacity to
Package 8d
6c
address community benefits
and 8h
Embedding of VICOBAS
Package 8h
versus individual benefits
(introduction of VICOBAs)
CBNRM/CBO
Create ownership for CBNRM
Package
To empower the committees
Package 6 a
Empowerment for negotiation
Package 6a
6a and 6
to own the process and
and 6 b
and contract management
and 6 b
b
manage the units
108
civil society
Outcome: Start build relationship with
Outcome: Strengthening of CSOs at all
Outcome: Jointly developed action plans
civil society
levels started. (Knowledge and skills).
between CSO and other actors at the
district, like CBOs, VEO, LGA,
Strategy developed for grant
Package 8a
Support CSOs in playing their
Package 8c,
management, strengthen
role of service provider,
8d, 8e, 8f
internal organization,
watchdog, social accountability
and 8g
present success stories on
monitor and advocacy
activities in NRM and
organization.
VICOBAs
Civil Society Strategy developed
Package
Holding LGA representatives,
Package
by assessing availability and
8a
WEO and VEO accountable.
8c,d,e,f,g
quality of CSOs in grant
management, internal
organization, success stories,
activities in NRM and VICOBA’s
109
8.6. Type of support and Packages
Despite that the DPT had been very clear about the scope of the capacity building
plan to the LGA staff, there were still high expectations regarding possibilities for
long-term training and career development. However, the consultants confirm
that considering the short lifetime of the project (4 yrs), it is not opportune to
send officials for scholarships abroad.
Most of the technical staff has been through a wide range of technical trainings
during the previous projects, either with BTC, WWF or DANIDA, Finnish Embassy,
etc. It does not make sense to subject them to the same type of capacity
building. Therefore, this capacity building plan will focus (next to basic technical
knowledge) more on relationships with and empowerment of lower levels, the
interconnecting aspects of organizational development, and facilitation skills.
The expected traditional type of capacity building support, such as training
courses, workshops and seminars on technical topics will be embedded in
packages of support modules complemented by on-the-job mentoring and
coaching sessions that support operationalization of the insights, experiences and
learning gained during to those events.
Per package, one lead service provider will be recruited to organize the complete
package, meaning he/she will prepare and organize the modules (trainings or
retreats or field visits) by different providers, and will ensure the on-the jobtraining, the individual and organizational learning from beginning to end and is
responsible for the expected outcome of that package.
Each package will consist of a series of activities (modules) that include at least
the following components:
–
–
the preparation of one (or a series of) :
•
Course (s), and/or
•
Training (s), and/or
•
Work shop (s), and/or
•
Field visit (s), and/or
•
Retreat (s) or
•
any other event (s) on specific topics
each event will include the formulation of an organizational and
individual action plan, which indicates what the person(s) will work on
while implementing his/her “normal” plan. This means it is integrated
in the existing work plans, it is not an additional “separate” plan.
–
follow up support and monitoring of the results and progress in
implementation of the action plan, by mentoring or coaching on a
regular basis (every 3-6 months). The service provider will visit the
districts and jointly assess what went well and what did not work out
110
and will provide “on-the-job training” (on average) 2 times after the
event with a few months in between the visits.
–
learning: jointly developing the lessons learnt and way forward. This
means that every 6 months there will a session organized with those
who have received capacity building and on the job training and
lessons learned will be identified and integrated in the next periods.
Each package also involves several layers of the organization, where the top
layers are supporting lower layers as in a kind of cascade (see figures 9 to 17) of
capacity building support (similar to the ToT model).
At national level:
Package 1: To build commitment and capacity for developing a common CBNRM
approach
Figure 9: package 1
The required transition:
The CBC and Wetland Units will be strengthened to be able to motivate the
Wildlife Department (WD) and create commitment regarding CBNRM. These units
will be supported by the Task Force to create momentum and policy support for
the required change. In a later stage, the WD will involve other departments
within the Ministry to commit to CBNRM as well and eventually other Ministries as
111
well. The WD will also be strengthened to support and stimulate commitment of
lower levels namely RS and LGAs.
The CB activities (as part of the action learning package):
At national level the proposed type of capacity building support is as follows:
a) To strengthen the Wildlife Division internally, starting with CBC and Wetlands
Units, in their capacity to convince the sections and units with the Division, on
the community aspect of the management in CBNRM and the WIN-WIN
situation for WD. CBC and Wetlands units will be supported in developing a
strategy to do so. Facilitate site visits for the Task Force and directors within
WD division plus DPP to existing WMAs with successful resource uses (one in
Tanzania: Idodi-Pawaga/Enduimet (and eventually one in Nambia)). Purpose
is to create understanding on the benefits of the community approach to
government and especially to the WD. The project can use the SWM
guidelines as the starting point to team building in the Wildlife Division.
b) To strengthen and facilitate the Task force to formulate a Kilombero Wetland
Management Plan in response to SAGCOT and BRN interventions in especially
the Kilombero Valley, during a retreat (2-3 days) on a location where they can
visit, WMA, BMU and PFM units. Purpose is to develop common vision and
jointly strategize, get organized amongst the divisions and build trust.
c) To strengthen a wider group of stakeholders such as technical officials from
MNRT (3 directors), Livestock and Fisheries (2 Directors), Land (3 directors),
VPO (director environment), Agriculture (director irrigation), Water (director
water catchment), and PMO-RALG (sector coordination, plus RNRO/AAS EPS)
in a common vision, joint approach and action plan during retreat (2-3 days)
on a location where they can visit PFM units such as Kiteto and Kilwa PFMs to
understand the potential for CBNRM.
d) To strengthen technical and management officials, as well as Civil Society and
Private sector representatives around the CBNRM sub sectors and have 4
participants per subsector to join in a tour of site visits to create mutual
understanding for possible collaboration and be inspired by other subsectors
to further develop one’s own subsector. Facilitation of 12 people to visit one
WMA, one PFM and one BMU in Tanzania (e.g. Kilombero: KVTC, Kiteto, Kilwa,
Iringa for PFM, Idodi-Pawaga WMA (Iringa) and for the BMU (need to find out
location of successful river basin BMUs).
Potential service providers: (to be recruited through call for proposal)
Tanzanian Consultants: ESAMI, MS-TCDC, AMKA
Universities: Sokoine, Ardhi
Institutes: CBNRI (Likuyu Sekamanaga), IRDP (Dodoma)
112
Table 21: Overview package 1
Who: BI
Why: outcome
a)
Convince
Wildlife
Division
sections and units
internally
starting
within the Division.
management
Create
CBNRM
with
CBC
Wetlands Units
and
What: content
the
How: activities and
core modules within
the package
Output
on the community
Facilitate site visits for
Common
aspect
the
of
the
in
directors
strategy,
Consultants
(AMKA,
Force
and
jointly
developed,
ESAMI, MS-TCDC)
within
WD
for roll out of SWM
Belgium University
the
division
WIN situation for
existing
the benefits of the
WD.
successful
community
Sustainable
uses (one in Tanzania:
CBNR Institute Likuyu
Wetland
Idodi-Pawaga/Enduimet
Sekamanga
Pasiansi
understanding
approach
on
to
and
Task
Potential providers
plus
WMAs
government
and
Management
and
especially
the
Guidelines
Nambia)
to
WD.
DPP
to
with
resource
possibly
one
guidelines
and
CBNRM
Sokoine University
Ardhi University,
harmonization
in
training
institute
Development of short
courses and tailor made
training
sessions
regarding
SWM
guidelines
b)
formulate
Task force
Kilombero Wetland
vision
Management
strategize,
in
response
develop
Plan
to
SAGCOT and BRN
common
jointly
get
Organize
days)
WMA,
the
units
build trust.
and
on
a
(2-3
location
where they can visit,
organized amongst
divisions
retreat
BMU
and
PFM
Common
vision,
Consultants
(AMKA,
strategy and action
ESAMI, MS-TCDC)
plan
Belgium University ??
Sokoine University
Ardhi University,
CBNR Institute Likuyu
113
Sekamanga
c)
to understand the
common
Directors MNRT (3),
potential
joint approach and
days)
Livestock
CBNRM.
action plan
where
and
for
vision,
Organize
retreat
on
a
they
can
Consultants
such
Fisheries (2), Land
(3),
Kiteto and Kilwa PFMs
Belgium University ??
as
Sokoine University
Ardhi University,
(environment),
CBNR Institute Likuyu
Agriculture
(irrigation),
(water
(AMKA,
ESAMI, MS-TCDC)
visit
PFM
VPO
units
(2-3
location
Sekamanga
Water
catchment),
and
PMO-RALG
(sector
coordination,
plus
RNRO/AAS EPS)
d)
Create
Technical
and
mutual
understanding
management
possible
officials, as well as
collaboration
Civil
be
society
Private
and
sector
representatives;
participants
subsector
4
per
for
CBNRM
sectors:
BMU,
inspired
and
by
VLUPs
PFM
sub
Organize visit to one
WMA,
WMA, one PFM and one
ESAMI, MS-TCDC)
and
BMU in Tanzania (e.g.
Belgium University ??
Kilombero:
KVTC,
Kiteto, Kilwa, Iringa for
Consultants
(AMKA,
Sokoine University
Ardhi University,
other subsectors to
PFM,
further
WMA (Iringa) and for
CBNR Institute Likuyu
the BMU
Sekamanga
one’s
develop
own
Idodi-Pawaga
CBNRM action plans
subsector.
114
At regional level:
Package 2: to build capacity of RS staff to respond to concerns and request for
support from the LGA levels, Civil Society as well as Private sector.
Figure 10: package 2
Package 2: RS support to LGA
RS
Crea on Dialogue pla orm for
CBNRM
AAS EPS
Crea on Business Council
Ensure applica on of M&E
system
RNRO
RLO
Conflict management
LGA
DFT
The required transition:
The regional secretariat will need to play its role in creating a dialogue platform,
which will provide space to accommodate the concerns of the private sector, civil
society and the CBNRM governance structures. Therefore, it needs to be well
informed and familiar with the CBNRM concepts and practical implementation at
lower levels. The business council, which is to be driven by the RC, needs
boosting and the agenda needs to be developed in joint action with the
stakeholders. There are several M&E efforts ongoing. It is hoped the project will
be able to strengthen some of the existing M&E systems and develop simple tools
for the lower levels to use these systems. The RS has the task to closely follow
the M&E for all NRM sectors and needs to be strengthened in the existing and
new systems for Land, Forestry, Fishery and Wildlife.
Strengthen the capacity of the AAS EPS and RNRO to understand, support and
develop a common CBNRM approach into their own thinking as well as their
development plans and their support to the LGA level.
The CB activities (as part of the action learning package):
a) Strengthen the capacity of the AAS EPS and RNRO to connect not only to
LGAs but also to civil society and private sector to meet and create space for
115
the stakeholders to voice their concerns. Facilitate training on multistakeholder processes and support them to apply the concept in their daily
life. This will include working towards empowering lower levels by facilitating
and strengthening their capacities rather then directing, as well as more skills
development in trust building, conflict management and negotiation.
b) Strengthen the capacity of the AAS-EPS and RNRO to coordinate and
implement the application of the M&E systems per sector between the
different levels
c) Strengthen the capacity of the RS (RC/RAS/AAS EPS) to organize a platform
for regular dialogue between stakeholders and representatives of the lower
levels. This will include creating understanding of these types of dynamics and
keep it issue based and practical. This capacity needs to be built by external
facilitators or experienced local consultants.
Potential providers:
Consultants: AMKA, ESAMI, MS-TCDC
Universities: Belgium Universities, Sokoine, Ardhi
Institutes: CBNRI, IRDP
116
Table 22: Overview package 2
Who: BI
Why: outcome
What: content
How: activities
Output
Potential
providers
a) AAS EPS
To understand, support
Common CBNRM approach
Coaching on
CBNRM included in LGA
ESAMI, MS-TCDC
and RNRO
and develop a common
and
coordination skills,
integrated development
Belgium
Universities,
CBNRM approach into
CBNRM integration into
Training in
plans
own thinking as well as
LGA development plans,
strategic planning,
Relevant M&E reports
Sokoine, Ardhi
Strategic planning, CBNRM
SWM and CBNRM
SWM guidelines applied
CBNRI, IRDP,
M&E system and indicators
common approach
Sustainable Wetland
Training in M&E
Management
system, collection
development plans and
support to the LGA level.
To support the
mainstreaming of the
SWM guidelines
Pasiansi
of data and
To monitor and evaluate
aggregation of
CBNRM
data
b) AAS EPS
To implement the
M&E per sector: to be
Training in existing
Skills in multi-
and RNRO
application of the M&E
developed and existing,
institutes followed
stakeholder management
systems per sector
eg.
by mentoring and
Skills in trust building,
NAFOBEDA
coaching
conflict management and
ESAMI, MS-TCDC
negotiation.
c) RS
To create understanding
Coordination and
To organize a
Functional Dialogue
Belgium
(RC/RAS/AAS
of CBNRM dynamics and
stakeholder management
platform for
Platform
Universities,
EPS)
keep it issue based and
(skill)
regular dialogue
practical.
Issue based dialogue
between
(skill)
stakeholders and
CBNRM issues (technical
knowledge)
Sokoine, Ardhi
representatives of
the lower levels.
117
At district level
Package 3: facilitation and empowering skills of DFT
Figure 11: package 3:
Package 3: LGA support to village
CMT
NTA
DPC
Visioning and ac on plan
Resources and staff
management
DFT
Internal team building,
informa on flow facilita on
Facilita on, suppor ng,
empowering lower levels
WEO
Ensure par cipa on, and
monitoring
Village
chair
VEO
VLUP and CBNRM guidelines
Conflict management
Village assembly
VGS
VEC
VNRC
Clarify commi ees, NR
protec on
The required transition:
The project (NTA and DPC) will strengthen the DFT to enhance the CMT’s capacity
to integrate the CBNRM activities into its council development plan so that it can
provide for resources and staff. Secondly, in order for the Council to function and
support properly the NRM sectors, the departments need to be able to manage
the generic management systems such as PlanRep, Epicor, LAWSON, OPRAS etc.
on one hand and improve their capacity to coordinate, empower and support
lower level on the other hand. The establishment and management of the specific
CBNRM units need specific knowledge and capacity from all the layers of actors
involved: from the DPT to the DFT to the WEOs and VEOs to the communities.
The DFT staff has to be strengthened in terms of facilitation skills to support the
WEOs and VEOs in helping the villages to establish their CBNRM units and
committees. Especially the capacity to involve and seek the participation of the
community and minorities is crucial for the rest of the process, which should be
done in close collaboration or through the WEOs and VEOs.
The council’s capacity to collect data for monitoring purposes and to measure
performance will equally be enhanced.
KILORWEMP already within its work plan intends to undertake policy review and
management planning in relation to fisheries within the KGCA, however, it is
118
advised that broader short courses should be arranged in boundary conflict
management and resolution as part of capacity building of the DFT. Such courses
may be tailor made to be similar to ones already being offered at ESAMI or
Mzumbe University. The idea is that treating fisheries in isolation from broader
boundary conflict issues may not be as effective.
The CB activities (as part of the action learning package):
a) To strengthen the CMT in application of CBNRM strategy and action plan
by organizing a workshop with the relevant HoDs, during which the DFT
will support the CMT to generate the action plan.
b) To strengthen a limited number of LGA management staff (staff from the
DHRO, DPLO, DT offices) in the utilization/application of the management
systems such as Epicor, Plan Rep, OPRAS, Procurement regulations and
other tools, the project will provide funds to allow the LGA staff to use the
relevant standardized courses as developed by LGRP.
c) To strengthen the DFT in less technical skills such as:
Visioning and CBNRM action plan development at CMT and full council
level to:
i.
Understand benefits of CBNRM and the implications for council
management.
ii.
Strengthen the councillors of the standing committee of Economics,
Works and Environment as well as the chairperson of the council to
understand the concept of CBNRM and the role for them to play:
iii.
Facilitate a site visit to a success story of closest CBNRM
d) Internal strengthening: Interconnecting between levels, information flow
facilitation, team building and trust building with stakeholders

CBRNM governance and leadership:

transparency,

facilitation,

accountability,

leadership,

organization development, and

financial management.

Land use planning:

identification,

design,

appraisal, and

M&E

Negotiation, communication, and coordination

Quality indicators for CBNRM M&E

Linking CBNRM and conservation
e) Development of broader short courses should be arranged in boundary
conflict management and resolution as part of capacity building of the
119
DFT. Such courses may be tailor made to be similar to ones already being
offered at ESAMI or Mzumbe University.
f)
Facilitation and empowering of lower levels including strengthening the
WEOs and VEOs in specific skills such as:
1. Awareness creation for CBNRM manual for VNRC and
councillors
2. Documentation and record keeping
3. Revenue collection
4. Financial management
5. Interconnection between levels
6. Monitoring
g) Ensure participation and community engagement consultation of minority,
negotiation, Conflict resolution
h) Clarify committees and NR protection
In the line of civil society support the DFT also needs to be introduced to social
accountability, including the importance and response to:
i)
Request for information
j)
Advocacy activities by CSOs (eg. SAM etc.)
To strengthen DFT in specific technical knowledge and skills:
k) In each of the sectors, the relevant professionals need to be strengthened
in the interpretation of the respective stock assessments (fish frame
survey, forest inventory, and wildlife survey based on areal photographs)
l)
At least one DFT member in each district should be capacitated in the
application of GIS through existing courses in the country.
Potential service providers:
Consultants:

ESAMI,

MS-TCDC

AMKA
Universities:

Ardhi

University of Sokoine (SUA)

University of Dar es Salaam (UDSM)

University of Dodoma (UDOM)

University College of Cooperatives and Business Studies (MUCCoBS)
Research institutes:

wildlife research at TAWIRI (Arusha),

forestry at TAFORI (Morogoro),

fisheries at TAFIRI, etc.
Training centres:

Wildlife training centres at Mweka, Pasiansi and Lukuyu Sekemaganga,

Forest and beekeeping at Olmontonyi and Moshi,
120

Fisheries centre in Nyegesi (Mwanza)

Local Government Training Institute (LGTI) at Hombolo
Standardized LGA courses providers

LGA systems support: Epicor, PlanRep, etc. (see scholarship program)
121
Table 23: Overview package 3
Who: BI
Why: outcome
What: content
How: activities
Participants per unit
WMA
a) CMT
Vision
Benefits of each
Workshops of 2 days
development on
of the CBNRM
per topic, theory and
common
units, business
exercise to practice
approach CBNRM
concepts and
Followed by coaching
revenue
over 6 months period
collection
(see DFT to be
BMU
PFM
DED, HoDs
Possible
inter district
modules
3 districts
combined)
b) LGA
To
Epicor, Plan
Relevant standardized
management
utilization/applica
Rep, OPRAS,
courses as developed
tion
Procurement
by LGRP.
c) DFT
enhance
of
the
management
regulations and
systems
other tools
 To understand
DPLO, DT, HRO, DIA
Benefits of each
Workshops of 2 days
DFT,
DFsO,
DFO, DGO,
benefits of
of the CBNRM
per topic, theory and
DHRO,
DNRO,
legal, DLPO,
CBNRM and the
units, business
exercise to practice
DLNRO,
DLFO, DPT
DCDO,
implications for
concepts and
Followed by coaching
DT, DCDO,
DFsO,
council
revenue
over 6 months period
DFsO,
DHRO, DPT
management.
collection
 CBRNM
DGO, DFO,
DPLO
governance and
leadership
 Quality
indicators for
122
CBNRM M&E
Linking CBNRM
and conservation
d) DFT
Interconnecting
Facilitation
Workshops of 2 days
DED, DFT,
DED,
DED, DLPO,
between levels,
Team building
per topic, theory and
DLNRO,
DFsO,
DFO, DGO,
information flow
Communication
exercise to practice
DT, DCDO,
DNRO,
DLPO,
Followed by coaching
DFsO,
DLFO, DPT
DCDO,
over 6 months period
DGO, DFO,
DFsO,
DPLO
DHRO, DPT
facilitation, team
building and trust
building with
stakeholders
Coordination
Trust building
Stakeholder
management
Negotiation,
communication,
coordination
e) DFT
To increase
Conflict
Short courses or tailor
DGO,
DFsO,
DCDO,
capacity to avoid
management
made courses
DCDO,
DNRO,
DNRO,
and settle
and resolution
DNRO,
DLFO, DFO
DLFO, DFO
conflicts
skills in
DLFO,
boundary
disputes
f) DFT able to
Awareness
CBRNM manual
Workshops of 2 days
DFT,
DFsO,
DHRO, DFO,
strengthen
creation on to
Documentation
per topic, theory and
DHRO,
DNRO,
DGO, DLPO,
WEOs and
VNRC
and record
exercise to practice
DLNRO,
DLFO, DPT,
DLO, DCDO,
Interconnection
keeping
Followed by coaching
DT, DCDO,
DCDO
between levels
Revenue
over 6 months period
DFsO,
VEOs
collection
Financial
DGO, DFO,
DPLO
123
management
M&E
g)
Ensure
VLUP and
Workshops of 2 days
participation and
CBNRM
per topic, theory and
community
guidelines
exercise to practice
Officer,
engagement
Negotiation,
Followed by coaching
DHRO, DFO,
consultation of
Conflict
over 6 months period
minority
resolution
Gender
DCDO
DFsO,
DCDO,
DCDO
Cooperative
Study tours on step 4,
5 and 6 of VLUP
mainstreaming
District by-laws
h)
Clarify
Committee
Workshops of 2 days
DFO, DLO,
DFsO,
Legal,
differences
guidelines
per topic, theory and
DGO, DFsO
DNRO,
DHRO,
NR protection
exercise to practice
DGO, DFO
DCDO, DLO,
between
committees and
Followed by coaching
NR protection
over 6 months period
DFO,
i) Standing
To understand
CBNRM concept
Workshop of 2 day
Standing
Standing
Standing
committee of
the concept of
Roles and
Facilitate a site visit to
committee
committee
committee
Economics,
CBNRM and the
responsibilities
a success story of
Council
Council
Council
Works and
role for them to
for councilors in
closest CBNRM
chairperson
chairperson
chairperson
Environment
play:
CBNRM
DGO
DFsO
DFO
To be able to
Access to
Workshops of 2 days
DPT, DGO,
DCDO,
DFO, DLO,
respond to CSOs
information
per topic, theory and
HoD, DFo,
DFsO,
DCDO, legal,
and council
chairperson
j) and k) DFT
3 districts
124
Advocacy
exercise to practice
DFsO, DLO,
DFsO,
activities by
Followed by coaching
cooperative,
CSOs (eg. SAM
over 6 months period
DPT
etc.
j) and k) DFT
To be able to
Stock
Existing
facilitate the
assessment
course/training with
committees to
interpretation
follow up on the job
establish,
(Fish frame
training over a period
manage and
survey, Forest
of 6 months
monitor VLUP,
inventory, Areal
WMA, BMU and
Photographs for
PFM
wildlife)
DFO/DGO/DFsO/DLO/
GIS
125
Package 4: Mainstream wetland management throughout district management
Figure 12: package 4:
The required transition:
The limitations of the SWM guidelines described in chapter 4.2.4. can be
overcome in a capacity building process by ensuring that project interventions
focus on leadership by both the Wildlife Division and the District CMT’s to place
CBNRM activities at the heart of district development.
There is also a need to undertake team building amongst district staff and in the
Wildlife Division. The guidelines can be used as the starting point of team
building. Although many staff have attended wetlands and sector natural
resources training in the past, it is now time that short courses or even tailor
made training sessions should be held with a cross sector team from each district.
The guidelines can then be introduced and discussed in a team setting.
A popularized version of the SWM guidelines could be developed in collaboration
with organizations such as WWF or other CSOs competent and equipped for such
activities. The utilization of that version need to be absorbed by the relevant DFT
staff for them to introduce to the lower levels.
The capacity building must also be result-oriented so that problems, which persist
can be dealt with by project management. In the absence of monitoring results,
the guideline elements that offer the least impact will continue without being
revised.
126
CB activities:
a) To strengthen the CMT in the roll out of the SWM guidelines by organizing
a workshop with the relevant HoDs, during which the DFT will support the
CMT to generate an action plan.
b) To strengthen a limited number of LGA management staff (staff from the
DHRO, DPLO, DT offices) in the utilization/application of the guidelines by
organizing a workshop and use the guidelines to strengthen the DFT in
teambuilding.
c) To organize short courses in SWM to district staff that have not been
trained in SWM yet.
Potential service providers:
Universities:

University of Sokoine (SUA)

University of Dar es Salaam (UDSM)
Research institutes:

wildlife research at TAWIRI (Arusha),

forestry at TAFORI (Morogoro),

fisheries at TAFIRI, etc.
Training centres:

Wildlife training centres at Mweka, Pasiansi and Lukuyu Sekemaganga,

Forest and beekeeping at Olmontonyi and Moshi,

Fisheries centre in Nyegesi (Mwanza)
127
Table 24: Overview of package 4: SWM mainstreaming
Who: BI
Why: outcome
What: content
How: activities
Output
Potential
providers
a) WD
To support and
SWM guidelines
develop a strategy to
Training in strategic
Action plan to roll
Pasiansi Training
planning and SWM
out SWM to the
centre
roll out the SWM
districts
guidelines
b) AAS EPS
To implement the
and RNRO
c) DFT
Short courses for
Joint sector
Pasiansi Training
application of the
introduction to SWM and
approach
centre
SWM guidelines
the use of the guidelines
To create
SWM issues
SWM short courses to
Functional
Pasiansi Training
understanding of SWM
Coordination and stakeholder
untrained DFT staff
Dialogue Platform
centre
dynamics and keep it
management (skill)
Regular team meetings
Team building
amongst DFT
To introduce WEOs
SWM guidelines
Workshops with
WEOs and VEOs
Pasiansi Training
and VEOs to SWM
Coordination and stakeholder
WEO/VEOs on SWM and
have permanent
centre
management (skill)
how to use the guidelines
access to the
issue based and
practical.
d) WEO/VEO
SWM guidelines
guidelines as
reference
e) VEC/VNRC/
To introduce the
DFT visits and work
CBNRM
Pasiansi Training
WMA/BMU/
CBNRM communities
SWM guidelines
session for introduction
communities have
centre
PFM
to SWM
to SWM and the use of
permanent access
the guidelines
to the guidelines
as reference
128
Package 5: Strengthen capacity to create enabling business environment for DFT
plus (with lawyer, cooperative officer, trade officer, TFS, TCCIA and the project
staff)
Figure 13 Package 5
The required transition:
The DFT members need to be strengthened in the business side (value chain
dynamics) of the Natural Resources products (timber, honey, etc.) so that they
can facilitate the connection of the communities with the businesses and help the
communities to find their way to the markets. The DFT, however, should not do
the studies themselves (though it is beneficial for the project if they participate in
the field visits) nor become the formulators of the plans. At lower level the DFT
needs to facilitate the WEOs and VEOs to support the communities in the benefit
sharing, conflict management and the negotiation and contracting skills.
The Management of the LGA needs to be strengthened to understand and
implement its role in creating an enabling business environment, including
providing services and goods: infrastructure, legal regulations, permits, licenses,
law enforcement, etc. It also needs to gain insight in the council role regarding
the revenue collection and the services to provide.
The CB activities:
a) To be capacitated in terms of insight into business dynamics and see
opportunities for revenue enhancement against the relevant service
delivery, the project should first conduct a series of studies on the natural
resource product value chains, the active actors involved, the market
issues, and the possible connection to the CBNRMs to begin with. During
129
the implementation of the study the DFT can be involved to gain insight
and to be able to facilitate the communities later. By using the field visit
notes in preparation of their visits to the communities, the DFT can
develop a booklet with guidance on how to support the CBNRM units in
this business approach.
b) For the harvesting plans the DFT should be able to support the CBRNM
units by inviting MNRT and MLFD to assist with conducting and
interpreting stock assessments.
c) To become facilitating/conducive instead of bureaucratic in order to attract
investors and businesses to invest in the council. The Cooperative Officer,
Trade officer and the TCCIA chairperson need to be supported through
tailor made on-the-job training.
d) To create a platform for businesses to discuss obstacles and issues, by
supporting the DC and the Lawyer to organize stakeholder meetings that
can be institutionalized to address issues related to doing business in the
district. To bring stakeholders from different angles and levels together to
address issue based topics related to CBNRM management.
e) To get insight into business dynamics by DPLO/DT and see opportunities
for revenue enhancement against the relevant service delivery Revenue
enhancement
Potential service providers:
Consultants:

ESAMI,

MS-TCDC

AMKA
Universities:

Ardhi

SUA

UDSM

UDOM
Research institutes:

wildlife research at TAWIRI (Arusha),

forestry at TAFORI (Morogoro),

fisheries at TAFIRI, etc.
Training centres:

Wildlife training centres at Mweka, Pasiansi and Lukuyu Sekemaganga,

Forest and beekeeping at Olmontonyi and Moshi,

Fisheries centre in Nyegesi (Mwanza)

Local Government Training Institute (LGTI) at Hombolo
130
Table 25: Overview package 5: use of NR
Who: BI
Why:
What: content
How: activities
Participants per unit
outcome
a) DFT
WMA
BMU
Possible inter
PFM
Get insight
Business
Participation in
DGO, Trade
DGO, DFO, DFsO,
DFO, trade ,
into business
dynamics
surveys of each of
officer, DFO,
DCDO, DLO
DNRO, DT,
dynamics to
regarding
the commodities,
DFsO, HoD
be able to
timber, honey,
starting with
DCDO,
properly
charcoal, trophy
timber, honey, and
Beekeeping , DPT
advice the
hunting,
fishery
CNRM units
photographic
Visits to KVTC
(via the
tourism, and
(timber), honey
WEOs, and
fish
(Singida, Dodoma)
VEOs)
How to prepare
fishery (Mufindi)
field notes and
hunting lodges
development of
(KNSL, Wild
guidelines per
frontiers limited)
CBNRM
Workshop of 2 day
district
modules
3 districts
Cooperative,
on each of the
commodities
dynamics and
relevant issues for
the CBNRM units
b) DFT
To support
Preparation of
DFT trains the reps
DFO, HoD, DGO,
committees/
the harvesting
from the
DCDO
CBOs
and
committees at
management
district level and
DFsO, DGO, DFO
DFO, DBO,
DCDO,
cooperative, DLO
131
plans
provides coaching
during field trips
To
Conflict
DFT trains the reps
Legal officer,
DCDO, legal officer,
DLO, DFO, legal,
strengthen
management,
from the
HoD, DLO, DGO,
divisional secretary,
DT, DCDO,
the village
contract
committees at
DHRO, (DFO,
WEO
DHRO, trade
government
negotiation and
district level and
DFsO Ulanga,
and
benefit sharing
provides coaching
because BMU in
committees
Gender
during field trips
WMA)
3 districts
mainstreaming
District and
village by-laws
c) Cooperative
Get insight
Business
Visits to KVTC
DGO, Trade
Trade officer, DFsO,
DPLO, Trade,
officer
into business
dynamics
(timber), honey
Officer, DLO,
CBO leaders
DFO, DBO, legal,
Trade officer, and
dynamics
regarding
(Singida, Dodoma)
Economist, HoD
TCCIA
and see
timber, honey,
fishery (Mufindi)
opportunities
charcoal, trophy
hunting lodges
for revenue
hunting,
(KNSL, Wild
enhancemen
photographic
frontiers limited)
t against the
tourism, and
Workshop of one
relevant
fish
day on each of the
service
Value chains
commodities
delivery
and
dynamics and
stakeholders
relevant issues for
Village and
the CBNRM units
DLO, DCDO,
cooperative
district by-laws
To become
Business
Visits to KVTC
DGO, Trade
Trade officer, DFsO,
DPLO, Trade,
2 districts /1
132
facilitating/
dynamics
(timber), honey
Officer, DLO,
conducive to
regarding
(Singida, Dodoma)
Economist, HoD
attract
timber, honey,
fishery (Mufindi)
investors
charcoal, trophy
hunting lodges
and
hunting,
(KNSL, Wild
businesses
photographic
frontiers limited)
to invest in
tourism, and
Workshop of one
the council
fish
day on each of the
CBO leaders
DFO, DBO, legal,
district (Rufiji)
DLO, DCDO,
cooperative
commodities
dynamics and
relevant issues for
the CBNRM units
d) DC, lawyer
To create a
Issue based
Organize joint
DGO, Trade
Trade officer, DFsO,
DCDO, trade,
platform for
topics identified
meeting of
Officer, DLO, HoD
CBO leaders, NGO
DHRO, DLO,
businesses
by stakeholders
stakeholders from
legal, DFO,
to discuss
different angles
cooperative,
obstacles
and levels together
and issues
to address issue
based topics
e) DPLO/DT
To get
Revenue
Workshop of one
insight into
enhancement
day on each of the
business
Economic
commodities
dynamics
principles
dynamics and
and see
opportunities
for revenue
enhancemen
Service delivery
related to value
chains
DGO, Trade Officer, DLO, Economist, HoD, DFsO, CBO
leaders, DPLO, DFO, DBO, legal, DCDO, cooperative
relevant issues for
the CBNRM units
Workshop of 2
days on how to
133
t against the
strategize on
relevant
revenue
service
enhancement
delivery
based on the use
of the NR products
134
At Village level:
Package 6: To strengthen village leadership in leadership, negotiation, contract
management, conflict resolution
Figure 14 Package 6:
The required transition:
This transition situation is about the strengthening of the lower levels by the DFT
via the WEOs and VEOs. There is, however, still need for external service
providers for providing on-the job training in mentoring and coaching skills for
the DFT members. In this package, the Village Game Scouts and lowest level of
community members can be easily and rather quickly supported by training at
existing institutions. The official training for village level participants could boost
the motivation of the villagers and therefore be considered as a quick WIN.
The CB activities (as part of the action learning package):
a) The project staff and DFT to train the VNCR/VEC, Village chairs in (to be
developed) CBNRM/SWM guidelines and leave them with a copy of the
Kiswahili manual.
b) To strengthen the village leaders, village chairs, committees chairs, VEO,
WEO, ward chairperson at a training institute such as Lukuyu –
Sekemaganga or Pasiansi on the short term and support them through the
project team and DFT with backstopping and mentoring to implement the
skills at the long term.
135
To motivate the communities and the committees and to empower them in their
roles to play
c) Training of all untrained VGS at Lukuyu –Sekemaganga or Pasiansi and
provide them with some basic materials such uniforms and boots
(eventually also tents)
d) To strengthen the DFT in facilitation, coaching and mentoring skills
through on-the-job training.
Potential service providers:

Wildlife training centres at Mweka, Pasiansi and Lukuyu Sekemaganga,

Forest and beekeeping at Olmontonyi and Moshi,

Fisheries centre in Nyegesi (Mwanza)

Local Government Training Institute (LGTI) at Hombolo
136
Table 26: Overview package 6: village level
Who: BI
Why: outcome
What: content
How: activities

Participants
Possible inter
district modules
WMA
BMU
PFM
Development of
DEMO,
All DFTs
DFO,
Difficult to combine
a) Game officer,
To empower the
WMA, BMU and PFM
Forester, Fishery
committees to own
guidelines
user friendly
DGO,
DEMO,
because very
Officer, DCDO,
the process and
Facilitation skills on
guidelines for
DFO, DPT
legal,
context specific
manage the units
empowerment of
lower level
lower levels
officials and
communities in
Coaching and
mentoring skills
DHRO, DPT
Kiswahili

Workshops on
facilitation,
coaching and
mentoring skills
to empower
others
b) WEOs and
To empower the
WMA, BMU and PFM
Workshop on
DEMO,
VEOs
committees to own
guidelines
latest version of
DGO,
DEMO,
the process and
Facilitation skills on
the WMA, BMU
DFO, DPT
legal,
manage the units
empowerment of
and PFM
lower levels
guidelines
Patrolling practices


All DFTs
DFO,
DHRO, DPT
Workshops of
two days on
facilitation skills
empower others
Village leaders,
To empower the
Leadership,

Training at
DGO,
DFsO,
DFO, legal,
137
village chairs,
committees to own
conflict resolution
Lukuyu-
DFO,
DGO,
DLO,
committee
the process and
Benefit sharing
Sekemaganga/Pa
HoD,
DFO
DCDO,
chairs
manage the units
siansi
DHRO,
DHRO,
DEMO,
VNRC/CBOs
To empower the
Leadership,
committees to own
conflict resolution
the process and
manage the units

Benefit sharing
Training at
DGO,
DFsO,
DFO, legal,
Lukuyu-
DFO,
DGO,
DLO,
Sekemaganga/
HoD,
DFO
DCDO,
Pasiansi
DHRO,
DHRO,
DEMO,
c) VGS
To motivate en
Best practices in
capacitate VGS NR
patrolling, and law

Training at
Lukuyu-
protection
enforcement
Sekemaganga/
DGO,
DGO,
DFO,
DFsO,
DHRO,
DBO,
Pasiansi
138
Package 7: strengthening law enforcement mechanisms
Figure 15 Package 7
The required transition:
The current existing system to enforce the land use plans as well as the CBNRM
plans is highly necessary and needs serious strengthening. The system as such is
well defined, but the staff involved is not well capacitated and the roles and
responsibilities are not well understood by all. At district level the staff availability
is very limited while very much needed to support all the levels. There is need to
clarify the direct link between law enforcement and CBNRM and Land use
planning on one hand and referring the way to other enforcement bodies at the
district on the other hand.
The CB activities:
a) Develop a package with a service provider and LGA lawyers to strengthen
LGAs staff, primary court staff, ward tribunals, and village land councils as
well as district land councils in which the system is applied according to
the regulations and where each level understands and know how to play
its role and knows where to go for further support.
b) Strengthen the involved staff to be able to refer community members to
the enforcement bodies such as the police or the DC or the PCCB, PPRA,
etc.
139
c) Strengthen community members to protect their land and their natural
resources, by providing them with the training to learn how to patrol and
how to enforce the regulations.
Potential service providers:

Legal secretariat (DANIDA)

Lawyers for Environmental Action in Tanzania (LEAT)

TAWLA (Tanzania Women and Legal association)

Legal Human Rights Centre (LHRC)
140
Table 27: Overview package 7: law enforcement
Who: BI
Why: outcome
What: content
How: activities
Participants
WMA
a) LGA
To formulate by-laws
Importance and benefit of
lawyers
and understand the
implications
To facilitate
the district,
PFM
Workshop of one
Legal
NGO,
DLO,
rules and regulations for
day on rules and
officer,
DGO,
legal,
CBNRM implementation for
regulations of
DLO,
DFsO,
DHRO,
legal,
DFO,
empowerment of the
How to formulate by-laws
lower levels
Village and district By-laws
Facilitation to empower

BMU
Possible inter
CBNRM


Training on by-
DCDO,
laws formulation
DBO
Workshop of one
laws
enforcement
a) Primary
Enhance capacity of
Clarification of roles and
Workshop of one
Legal
NGO,
DLO,
court, ward
the primary court at
responsibilities
day on rules and
officer,
DGO,
legal,
tribunals, and
district level to
Legal instructions on how
regulations of
DLO,
DFsO,
DHRO,
village land
enforce the by-laws
to enforce by-laws
legal,
DFO,
Village and district by-laws
3 districts
day on local by-
others in CBNRM law
councils
district modules

CBNRM


Training on law
DCDO,
enforcement
DBO
3 districts
Workshop of one
day on local bylaws
b) DC, DED
To strengthen existing
Importance and benefits of
law enforcement
rules and regulations for

Participation in
organized
CBNRM implementation for
workshops with
HoD
LGAs on the
141
the district,
subject
Village and district By-laws
c)
to enforce the by-laws
Clarification of roles and
Workshop of one
Legal
NGO,
DLO,
VGS/VNRC/
or to refer
responsibilities
day on rules and
officer,
DGO,
legal,
CBO
communities to higher
Legal instructions
regulations of
DLO,
DFsO,
DHRO,
legal,
DFO,
levels.
To negotiate and
manage contracts
Village and district by-laws
Negotiation skills
Contract management

CBNRM


Training on law
DCDO,
enforcement
DBO
3 districts
Workshop of one
day on local bylaws
142
At civil society level:
Package 8: to strengthen several levels of networks to become stronger partners
in relation the LGAs and CG (also see chapter 7).
Figure 16 package 8
The required transition:
Most civil society organizations need internal strengthening in terms of
individual competencies in service delivery (VLUP or CBNRM) as well capacity
building of their organizational processes and systems. The NGO networks
that reach out from regional to community level need to be strengthened in
terms of CBNRM knowledge and application of the tools. Because most
organizations are service delivery oriented, they need to be strengthened in
the competencies to facilitate access to information, their capacity to mobilize
community members around an issue, to organize the people to meet and get
organized in order to select representatives. The regional and district level
CSOs need to be strengthened to implement transparency and accountability
tools such as Dashboard and SAM. At the same time, there already exist
whistleblowing models in forestry sector that can be introduced in the project
area by training the CSOs and developing similar tools for Wildlife and
Fishery. Finally, in order to be able to paly their advocacy role at national
level CSOs need to be able to collect relevant information at the local level to
build their case for policy influencing.
143
The CB activities (as part of the action learning package):
a) Capacity building in internal ID/OD development
b) Prepare them to provide CBNRM services,
c) Strengthen them to implement IVIS activities, (is large: access to
information, voice and influence, negotiations and sanctions) which will
require to develop mechanism to whistle blow, to set up debates and
dialogue platforms, and empower village and ward tribunals
d) Train them in SAM to improve services and
e) Train them in Dashboard to monitor NRM accountability,
f)
Train them to prepare advocacy evidence and
g) Support them to interconnect to upper and lower levels
h) Introduction or strengthening of VICOBAs
Potential service providers:
International NGOs:

WWF

CARE
National NGOs:

TFCG

Mjumita

TNRF

Haki Ardhi
144
Table 28: Overview package 8
Who: BI
Why: outcome
What: content
How: activities
Possible inter
district modules
Regional and
a) To strengthen the
Internal ID/OD
district level
organizations in
development
NGOs
ID/OD
b) To prepare them to
CBNRM legal steps and
provide CBNRM
management
To be developed
3 districts
To be developed
2 districts
(Kilombero and
services, such as
Ulanga)
VLUP, WMA, BMU, and
PFM establishment
c) Strengthen them to
IVIS
To be developed
2 districts
hold government
Dash board and SAM
(Kilombero and
accountable
implementation
Ulanga)
whistle blowing
dialogue platforms
advocacy
d) Empowerment of
law enforcement
village leaders and
VICOBAs
To be developed
(Kilombero and
ward tribunals
Ulanga)
e) Support them to
Information sharing and
interconnect to upper
communication techniques
and lower levels
2 districts
To be developed
2 districts
(Kilombero and
Ulanga)
145
At project level:
Package 9: NTAs and DPCs need to be strengthened in specific skills
Figure 17 package 9
The transition required:
The DPC and NTAs need to participate in a minimum of the district packages in
order to be able to give backstopping services. In addition, the project team
needs to be strengthened in specific skills such as mentoring and coaching, which
is an important part of their task in strengthening the DFT. In addition, they need
to be introduced and become familiar with council management systems (PlanRep
and Epicor, etc.) to be able to align the project program to the existing systems.
The CB activities (as part of the action learning package):
a) To capacitate the project staff (district coordinators and technical
assistants) in mentoring and coaching skills
b) To introduce the DPT to Epicor, PlanRep, OPRAS, procurement and M&E
systems
c) To capacitate the project staff in social accountability concept and tools
d) To capacitate the staff to facilitate information availability for different
levels, eg. regular presentations at LGA level, promote learning sessions,
use of media, community radios and theatre groups
146
There are a number of studies and surveys that need to be done before capacity
building can take place such as:
e) Joint development of CBNRM manual with WEOs, VEOs and for VNRC and
councillors
f)
Value chains of 6 commodities for LGAs: DFTs, cooperative and trade
officers
g) Revenue enhancement manual for LGA: Treasurer, DPLO, councillors,
lawyer (by-laws)
h) Revenue collection manual for WEOs/VEOs
Potential service providers:
Consultants: ESAMI, MS-TCDC, Make (mentoring and coaching), eMJee (social
accountability)
Universities: Ardhi University (GIS)
Training institutes: standardized courses (LGA systems)
147
Table 29: Overview package 9
Who: BI
Why: outcome
What: content
How: activities
Possible inter
district modules
Project staff
To capacitate in
(NTA and DPC)
mentoring and
Coaching and mentoring
Tailor made training
3 districts
DPT
coaching skills
To integrate project
Epicor, PlanRep, OPRAS,
Training in
3 districts
program into district
procurement and M&E
standardized courses
development plans
systems
To capacitate in
Social accountability
responding to civil
concept and tools
Tailor made training
3 districts
Tailor made training
3 districts
society demands
To capacitate to
Access to information
facilitate information
Information sharing
availability at different
levels
Learning
Use of media, community
radio and theatre groups
148
8.7. Possible providers and quality considerations
Considering the above ideas, the follow approach is recommended:
For each package, a lead service provider will be selected through a call for
proposals, which can buy-in the technical expertise for elsewhere or organize the
participation of the relevant target persons in already available training at
existing institutions or organize a retreat program or site visits while ensuring
quality and tailor made follow up and backstopping after the main events.
Each package will clearly indicate the quality criteria to which the lead provider
has to adhere, as well the time frame and calendar, which has been developed in
participation with the target group.
The quality criteria for the service provider include:

Relevance of the team composition in terms of competency

Academic level of the team members

Experience with similar assignments in similar context

Innovative aspects in the proposal

Booked results in relations to capacity building with LGAs

References responses
There are a number of institutions in Tanzania that are able to provide such tailor
made
programs
for
example
MS-TDCD
or
ESAMI.
A
more
informed
recommendation can be provided after insight in the report developed by the
Scholarship Program.
8.8. Indicative budget
A rough estimate of the costs for each package is presented in table 28. The total
costs for the capacity plan is estimated at 750,000 $ over the next three years.
Main costs involve consultancy fees, training and course fees, transport costs,
facility costs for workshops and trainings, accommodation and per diems.
Table 30: rough budget per capacity building package
Capacity building
activity
package 1
package 2
package 3
package 4
package 5
package 6
package 7
package 8
package 9
Level of intervention
National level
Regional level
DFT
Wetland management
LGA
Village level
Law enforcement
Civil society
Project team
Accumulative $
in 3 years
30,000
45,000
150,000
45,000
120,000
60,000
200,000
100,000
750,000
149
8.9. M&E process
On a six monthly basis the project staff will collect information to report on the
indicators of the table 29 in Annex 5. Most of the information will be derived from
the field visits and the WEOs. The activities and indicators are integrated into the
existing work plan of KILORWEMP.
8.10. Culture of learning
Institutionalize the organization of learning sessions on every last Friday of the
month early in the morning. In principle all present staff participates. There will
be sanctions for those who don't participate for no good reason. The learning
session will consist of the presentation of a selected success story of one sector,
including the description of what happened and what/how the sector had
contributed, what made it a success and what challenges had been encountered
and overcome. Every month another sector presents its success story. The
audience is invited to ask critical questions and to jointly identify the lessons
learnt. The presentation will not take more then 30 min and discussion not more
then one hour. A taskforce from HRO will ensure that each month one session will
be organized, prepares the agenda in a participative way and will be the
secretariat of the meeting.
8.11 Sustainability
Embedding in the ministry system for capacity building
The MNRT has already established an innovative capacity plan that is currently
being implemented. It only seems logic to gradually embed the capacity building
activities into the existing system. KILORWEMP needs to liaise with WD through
the Research, Training and Statistics Unit to better develop their training plan to
make it more systematic and targeted to strategic objectives.
It is recommended that the Director of research, training and statistics of the
Wildlife Division will be involved in the development of the packages at national
level, while the HROs of the three councils will be involved in the development of
the details at district level.
Lower level support responsibilities within job descriptions
The ministry as well as the HRO at the LGA level should ensure that
interconnecting tasks such as support to lower levels are well described in the job
descriptions of the LGA staff so that though the OPRAS staff can be hold
accountable for the continued support to lower levels. Of course will each level
always complain that there are not enough enabling resources to travel and to
monitor, etc. Each level has to establish a mechanism to ensure that at least once
per month there is a field visit, eg. by taking the opportunity to join teams
(ASDP, works, etc.) that have the means and resources to go to the field.
150
Performance measurement
Capacity building should be linked to performance assessment, which is at the
level of the head of departments OPRAS for the organizational performance. In
practice it means that even if there is not much funds to implement the planned
activities, the head of department should find ways to ensure results at lower
level by guiding his team in a smart way. This means on one hand that the HoD
needs to negotiate for his/her staff to be better integrated in the district plans
and for example to combine field visits with sectors that have funds for
monitoring. On the other hand, the HoD and HRO should be clever in the
development of the OPRAS by avoiding that performance indicators depend too
much on available resources.
151