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THE UNITED REPUBLIC OF TANZANIA

Aligning DeNRM to the LGRP II

AN INFORMATIVE PAPER BRIEF PRESENTED TO THE MINISTRY OF NATURAL RESOURCES AND TOURISM,

PRIME MINISTERS OFFICE FOR REGIONAL AND LOCAL GOVERNMENT AND

MINISTRY OF LIVESTOCK DEVELOPMENT AND FISHERIES

The framework for integrating reforms for improved service delivery and poverty reduction

National Medium Term Strategies

MKUKUTA Ruling Party Manifesto

Cross-Sectoral Reforms

PSRPLSRP

LGRP

PFMRP

NACSAP

MDAs/RAs/LGAsMedium Term

Strategic Plans and Budgets

Sector Development Programmes

Agriculture

Health

Service Delivery

M&E

Feedback

M&E

Feedback

A Reference FrameworkBEST

M&E M&E

National Long Term Strategies (Vision 2025)

Etc.

By Mr. Sadiki Lotha Laisser, Wildlife officer-Wetlands Conservation Ministry of natural Resources and Tourism.

February 2012

For the establishment of Decentralized Natural Resource Management (DeNRM)

Natural  Resources  

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Aligning Decentralized Natural Resource Management (DeNRM) and the Local Government Reform Program (LGRP II) This document is for internal use only by the advisors think tank on DeNRM initiated by BTC as an “informal” working group to pool ideas, brainstorm on the concept, look at challenges and arrive at a harmonized understanding of what is DeNRM and how it could best be implemented under the LGRP. This is a working tool to be used to first come up with a common concept and secondly to use this to guide counterparts to take up ownership so that DeNRM becomes a demand driven process of Government.

Preamble The Government and Development Partners (DPs) on-going process since 2009 to develop a “Decentralized Natural Resource Management” (DeNRM) support program, has not been without its challenges. Key among them has been to find a suitable government driven program framework which the DPs can support. One of the logical alignments of DeNRM would be as a DP support program to assist sector ministries to develop their Natural Resource Management (NRM) Sector Development Programs (SDP) in line with the Local Government Reform Program (LGRP II). This is both in accord with the Joint Assistance Strategy for Tanzania (JAST) and conforms with the “highest level of political will”, the Constitution of the United Republic of Tanzania (ie Articles 145 and 146) to engage people’s participation, and aims at devolving powers and decision making to the people through Local Government Authorities (LGA). LGRP is the program framework that all line ministries (NRM sectors included) are to follow to implement this Decentralization by Devolution (D*D) Policy. The sector policies of both the Ministry of Natural Resources and Tourism (MNRT) and the Minister of Livestock Development and Fisheries (MLDF) are in line with D*D. Their regulations advocate for democratic processes and citizen participation in NRM. This is known as Community Based Conservation (CBC)(in wildlife) or more popularly referred to as Community Based Natural Resource Management (CBNRM). CBNRM empowers responsibility to sustainably manage resources at the lowest appropriate governance level, through granting user rights. This is an on-going process since 1974 in wildlife, gaining momentum in wetlands, fisheries and forestry in the past 10 years. Whereas central ministry retains functions to manage protected areas on 40% of land, responsibility for resources on village land (ie 60% of the country) has in policy been devolved as the responsibility of the Local Government Authorities (LGA). Their role is to implement these CBNRM sector policies on behalf of the Ministry concerned and provide extension services to establish user rights and wise use, with the Ministry and Divisional Authorities (MDA) providing technical backstopping, capacity development and policy oversight. LGRP II should therefore be seen as the over-arching framework for NRM under D*D. DeNRM becomes the DPs support program to implement the NR elements of LGRP II, thereby responding to a national “demand driven” call for assistance to help develop and implement the NRM SDPs. Common Purpose of CBNRM a. Integrated, holistic resource management. b. Devolving empowerment to manage at the lowest appropriate, user level through user rights. c. Connecting all sectors under decentralization under the hierarchy of LGA. d. Creating a multi-sector service support group the DFT or DEMC. e. Creating a user collective or community management lobby group under a universal VEMC or VNRC. f. Following the same 6 steps to establishing CBNRM (on village land and joint co-managed resources). g. Following the same 4 MTEF targets, financial, administrative, planning, budget and reporting guidelines. h. Provide best practice wise use technology for community investments.

Map of Protected Areas in Tanzania

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1. Why Community Based Natural Resource Management? After independence in the 1960s, with 8 million people, setting aside land and exclusion for biodiversity conservation was possible. Today, 50 years on and a 5 fold population increase, with 44 million people’s growing livelihood needs for NR, this is no longer practical. With 35-40% under some form of reserved or protected status, Tanzania has one the highest % in the World, of land set aside for bio-diversity preservation and conservation of ecosystem services that sustain mankind. However recent studies suggest, outside of protected areas (PA) NR like forest, fish, wildlife and water, are dwindling at alarming rates, and encroachment and degradation in nature preserves, are increasing. Current Pressures on NR • Game Control Areas (GCA) have experienced upto 50-75% encroachment (TAWIRI). • Protected areas are experiencing 0.5-1.3%/year degradation and deforestation (WD paper). • Forests are being degraded at 412 000 ha/year (REDD Strategy). • Fisheries have declined by 33% due to over-exploitation. • 50 % of natural water storage in wetlands has been encroached (Wetlands Research Agenda). • 90% of wetlands appear polluted in one form or the other (Wetlands Research Agenda). • Almost all wetlands have been invaded by pastoralists (VPO). The growing population, if uncurbed will reach 12 times its current level, nearly half a billion people by the end of the century. If demands on NR continue at the same consumptive level, Tanzania will experience NR shortages. When it comes to water, Tanzania is 60% semi-arid and a recent global survey, the Mckinsey Plot, rated Tanzania as one of the most water scare countries in the World.

Water will become one of the first limiting to development and Tanzania will enter what WHO considers as water scarcity by 2020. This is a feature which will be compounded by climate change.

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Likewise if the current deforestation rate continues unabated, forests outside PA on village land, will dwindle to 1% by 2050, and pressure will increase on reserved forests. Recognising that new strategies in NRM and technological advancement, were needed to expound on wise and sustainable use of nature by the users, most NRM sector policies have in the past 10-20 years undergone some form of reform towards more participatory management. The time to act is now! 2. What is LGRP II? The Local Government Act (1982) laid the foundation to empower LGAs to become self-governing, autonomous bodies, as a means of democratically involving grass root, citizen participation in governance. The policy process, known as D*D, started in 1996, aimed at bringing the administration and implementation of the Poverty Reduction Support Program (PRSP = MKUKUTA) and central government Sector Development Programs (SDP) closer to the people. Key, pre-requisite steps in the process are to decentralize to LGA the political, financial, administrative and human resource autonomy to manage dedicated LGA SDP grants under the Medium Term Expenditure Framework (MTEF). Wildlife Division was perhaps one of the first, and most NRM sectors have followed. All district based NRM officers are now administratively answerable to the District Council and provide data to their sector ministry. Government’s commitment to D*D and people’s participation was the key focus of the 2007 national launching of the Opportunities and Obstacles to Development (O&OD) methodology, re-emphasized in 2009 by the President, Dr. Jakaya Mrisho Kikwete’s endorsement of the LGRP II. At the time, the Prime Minister’s Office for Regional and Local Government (PMO-RALG) made a call for greater commitment and cooperation of the DPs, central and sector ministries, of regional administration, ALAT, civil society, academic institutions and of LGAs. Much support is needed to bring about the D*D reforms, to enable LGA to fully implement Vision 2015, MKUKUTA strategies, “Kilimo Kwanza” campaigns, the Economic Stimulus Package and the 5 Year Economic Growth Plan. The aim of the LGRPs is that political, administrative and financial decision making powers are devolved to the Local Government Authorities (LGAs). The ultimate goal is to reduce poverty through improved service delivery at the local level. This calls for new SDPs in NRM to lay down the road map how each sector plans to tackle sustainable use, climate change and issues of globalization at the local level. More importantly, it advocates for more democratic processes by involving “greater citizen participation”. The Government recognizes that, in order for the LGAs to provide improved public services in NRM in an efficient, transparent, accountable and equitable manner, substantial improvements are required in terms of the intergovernmental legal, institutional and fiscal structure and in terms of the financial and human resource management and capacity, as outlined in LGRP II. 3. What Does LGRP Aim to Achieve vv NRM? LGRP II (July 2009 to June 2014) is a follow-on of LGRP I (1998 – 2008) with the goal of: “Accelerated and equitable socio-economic development, public service delivery and poverty reduction across the country.”

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The four outcome areas of LGRP II, adapted to NRM, include: 1. The NRM SDP, institutional and political frameworks are “D*D compliant”, with earmarked LGA funds, complete with legal,

technical, administrative and fiscal toolkits, guides, etc in place for CBNRM. 2. LGA NRM service delivery capability enhanced through increased human resource manpower and capacity. 3. Citizen understanding and participation in the reform process empowered through CBNRM and secure user rights. 4. Effective LGA governance, management and accountability in implementation of NRM SDPs. LGRP II lays out the steps whereby all NRM SDPs are required to become D*D compliant by 2014, and the current targets are: a. “Harmonized and holistic NRM planning and M&E systems in place by 2010”, b. “NRM sector policies, laws, guidelines etc D*D oriented by 2011”, c. “NRM MDA action plans in place by 2011 to build LGA capacity”, d. “NRM ministerial budgets and plans reflect D*D mainstreaming by 2012” with earmarked LGA funds, and e. “D*D reflected in all NRM ministerial structures by 2013”. DPs support to LGRP II through DeNRM could therefore help central ministries to develop their NRM SDPs and technically and financially to assist them to implement their roles under the LGRP II.

4. What SDP’s are Currently D*D Compliant? As part of the ongoing Constitutional review, the national D*D strategy and policy is in place, supported at the highest level of government and funded through various “SDP basket funds”. Here, a pooling of resources by government and DPs takes place through national support programs. Under LGRP I, education, health, roads, agriculture and water supply SDP’s are on the way towards D*D and are mostly fully autonomous under LGA. As these sectors have pioneered the way, the protocol is open for NRM sectors to follow. Since early 1980s, in line with the LGA Act, government has pursued a process of participatory NRM (on village land) or joint management (around protected areas) to achieve CBNRM. In the past 20 years, several pilot programs in D*D of NRM have been initiated: Community Based Conservation (CBC), Participatory Forest Management (PFM), Sustainable Wetlands Management (SWM), Wildlife Management Areas (WMA), Beach Management Units (BMU), Water User Groups (WUG), etc. History of participatory or CBNRM in Tanzania: • 1974 Community Based Conservation (CBC) around 16 NP, 28 GR, 44 GCA and 143 hunting blocks. • 1989 Wildlife Management Areas (WMA) in 33 sites, 200 villages at various stages. • 2000 Participatory Forest Management (PFM) in 2000 villages, 60 districts at various stages. • 2000 Sustainable Wetlands Management (SWM) in 90 sites, 200 villages, 16 districts at various stages. • 2003 Beach Management Units (BMU) over 700 in key fisheries sites. Most NRM district staff (eg DFO, DGO, DNRLEO, etc) now come under the jurisdiction of the DED as their Warrant Officer, thus delinking and decentralizing their administration from the parent ministry. However, their budgets are meager and their capacity low. Trained as enumerators and enforcement agents, they now find they have to work as CBNRM extension agents, for which they have no skills, training nor tools. As yet, no NR sector has fully undergone D*D and all need of some form of support for a nation-wide roll-out. 5. Are NRM SDPs in LGA Budgets? Most rural and urban poor rely almost entirely on nature for their survival, poverty coping and economic security. Estimates suggest 33% of hh income is from the “formal” sale of NR (ie USD 100 out of USD 350 hh average from trade in timber, poles, fuelwood, charcoal, fibers, etc), and a further 33% is “informal”, from what communities derive “for free from nature” for subsistence needs (ie for food, energy, water, shelter, etc).

% of Economy Derived from Wetlands Regionally, District and Village

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At region, district and village level, 37-44% of the economy is from wetland ecosystem services (water for domestic need, hydro-power, industry, irrigation, livestock and grazing, vegetables, etc) and a further 30% is from trade in NR products (eg tourism, charcoal, fuelwood, timber, fish, meat, etc). Extracting from the 5 Year Development Plan (FYDP I: 2011-2016), at national level, NR provide over 70% of the populations needs, contributing to 55% of the GDP. Notably: 25.3% agriculture (ie land and water), 15% tourism (wildlife and wetlands), 4.7 % livestock (wetlands), 2.3% forest and hunting (forest and wildlife), 5% manufacturing (ie 50% of 9.9% as dependent on hydro-power), 1.85% mining (ie 50% of 3.7% as dependent on hydro-power), 1.2% fisheries, etc. National Level Ecosystem Services Derived from Nature a. Wetlands supply of all domestic and industrial water, and sanitation b. Wetlands provisioning of all hydro-power (65% of all electricity) and related industry, c. Wetlands and wildlife drives the USD 1.3 billion tourism industry, d. Wetlands provide water and grazing for20 million cattle and the USD 1.3 billion valued added pastoralist produce industry, e. Wetlands supports 350 000 ha irrigation and the vegetable produce industry, with potential 1 million ha growth. f. Wetlands supports the 350 000 ton fishery and USD 175 million exports. g. Wildlife support the hunting sector both tourism and Bushmeat, the latter worth USD 50 million (in 2000) h. Forest sector support 80% hh biomass energy, USD 650 million charcoal industry. The consumptive use of all NRs is currently at a discounted cost to future generations who will have to pay for when its all gone (ie in the same way as modern society is paying for our forefathers oversight on climate change!). Therefore, it is in national interest to earmark a certain % of the revenues generated from trade in natural produce to re-invest at MDA and LGA level, in participatory NRM. As NRM is not yet fully devolved, consequently at District level, NR sectors fall under the Sub-Vote for “Environment and Natural Resources”. There are (as yet), no specific, centrally earmarked vote or fund for NRM at LGA level. The 25% that is returned to LGA from wildlife hunting concessions and 100% from resident hunting, is used for general development. There is no mechanism as yet to earmark these revenue streams for direct re-investment in wildlife management. Similar scenarios prevail with other NR revenues. As a result, District Council fund allocation earmarked for NRM is less than 0.5% of the sum total of the District Development Plans (DDP). This is disproportionately low compared to the “real value” of NR to local households (ie 66%), district and national economy, livelihoods, poverty reduction, commercial sector and development in general. Most CBNRM activities by LGAs is mostly DP dependent. It must be recognized that NR have three economic values and therefore revenue streams: a. Poverty Reduction: NR provide anywhere between 60-70% of rural households economy, both in income from trade in produce (eg

vegetables, crops, fish, timber, charcoal, etc) and in subsistence, consumptive home economic value (eg as provisioning food, water, energy, etc). Nature provides a prime poverty coping strategy, a key component of MKUKUTA and contributes substantially to community economic growth. Other than payment of license fees, little of this use however, enters the formal district revenue system.

b. Economic Community: NR are also traded commercially and enter the global market. The USD 1.3 billion tourist industry is dependent on NR as is the USD 1.3 billion value added chain (ie nyama choma industry) allied to pastoralism. Likewise, trade in timber, fuelwood, charcoal, fish, etc are all multi-million dollar commercial, private sector industries, from which local and central government derive tax revenue.

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c. Ecosystem Services: Harder to put a value to, nevertheless NR provide free services to mankind like water for domestic, industry, hydro-power, irrigation, vegetables and livestock, plus grazing areas for pastoralism, waste treatment, flood and climate change amelioration, erosion prevention, shoreline stabilization, etc. Services for which there is little in the way of re-investment to sustain.

There is a need under D*D to earmark apportionment of national and district investment in NRM that is equal and proportionate to its strategic economic and poverty values, for when the resources is all used up, the consequences would be dire for poverty. In addition, there is a need to bring NR into the tax based economy such that some of the revenues from the USD 1.3 billion tourist industry, USD 1.3 billion livestock value added industry (ie nyama choma restaurants that dependent on pastoralism in wetlands for their meat) and the multi-million USD trade in poles, timber, charcoal, fuelwood, etc, and the use of wetlands/water for irrigation, vegetable cropping, industry, domestic needs, hydro-power, etc, is re-invested at source in sustaining the very natural resource base that generates this economy. 6. What is Needed to make NR Sectors become D*D? Lessons learnt from LGRP I, shows that early intentions were over ambitious. The dimension of the policy and reform process in over 158 LGAs and 11 000 villages, are vast and complex. This is even more compounded in NRM which adds a potential 40-50 000 user groups to work with (ie in fisheries, forestry, wildlife, wetlands, etc). Any reform takes time to gain critical understanding to achieve a perception change. D*D is no exception! D*D is in its infancy. There is a relatively small comprehension at all levels of the concept and of the technology development needed and knowledge transfer required. Consequently, there is much need for the right tools, instruments, “how to do guides” and capacity development. This need covers all aspects from central to LGA levels including governance (ie institutional, administration and financial management, etc) to also include thematic areas (ie forestry, fisheries, wildlife, wetlands, etc), which in NRM includes both elements of how to develop CBNRM, how to secure user rights as well as advise and recipes on best practice wise use technology and micro-projects. Fortunately, progress in pilot PFM, SWM, BMUs, WMAs, etc has been positive, with new approaches, tools and instruments emerging. Planning is aligned to the MTEF system for inclusion in the DDPs and this process is well described in the PFM/SWM Administration and Finance Management Manual that elaborates MTEF as applies to NR sectors and has user friendly guides based on MTEF templates and formats. Pilot programs of SWM and PFM, have established the following 4 Medium Term Expenditure Framework (MTEF) targets in LGA to bring NRs under CBNRM: • MTEF 1: Priority SWM/PFM sites 3 year strategic plans in DDPs, based on resource inventory and strategic economic assessment. • MTEF 2: SWM/PFM process facilitated per village for each site leading to CBNRM user rights thru 6 steps. • MTEF 3: SWM/PFM village management plans implemented thru wise use investments and micro-projects. • MTEF 4: District capacity in SWM/PFM enhanced through CEPA, training and operational support. D*D in NRM needs much support, a slower, longer term approach and greater tools, how to do guides and capacity development, all of which should be laid out strategically in SDPs of the relevant miniseries. 7. What Does Citizen Participation or NRM Mean? CBNRM or devolution of responsibility for NRM to LGA and communities, is not new, it started a while back: All NRM sectors over the past 10 years have aligned their sector reforms, have similar policy and legal approaches to ensure communities obtain security of tenure through resource user rights. The premise is “if you own it you will look after it” and thereby the principle is rural communities as resource owners, with security of tenure, will become more willing to participate in planning and resource use management and protection (= a state of CBNRM will prevail). The Village Land Act (1998) and the Land Use Planning (LUP) process, allows communities to own NRs on their land (= 60% of land area) and to plan for their sustainable use. Likewise NRM sector policies encourage join management with communities around protected areas (PA) and benefit sharing (= 40% of land area). Although differing slightly in sector approach, basically all NR policies follow the same Participatory Rural

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Appraisal (PRA) techniques emphasized in the Village Land Act that can be clustered around 6 primary steps to attain CBNRM. All NRM sectors converge on MTEF 2 by adopting the same 6 universal steps towards CBNRM or Joint NRM, notably: 1. NRM User Group formed and constituted, 2. NR boundary marked and resource mapped, 3. Participatory resource and use assessed, 4. Resource management plans developed, 5. Resource use By laws issued, and 6. NR user rights secured (encouraging investment in best practice, mitigation and wise use micro-projects). As all NR sectors follow these same 6 basic steps to achieve user rights, this bodes well for a universal, integrated and harmonized multi-sector wide approach (SWAp) to support D*D = DeNRM. 8. What are the Challenges to Implementing NRM SDP under D*D? NR sectors currently have only a handful of staff in their line ministry as technical support units for LGA. The current LGA support staff to backstop CBNRM in both PMO-RALG, MNRT, MLDF, etc will need to be increased and capacity strengthened if CBNRM is to be rolled out to all districts. Equally, NRM sectors do not have adequate sector representation in the District Facilitation Teams (DFT). The estimated +/- 300-400 DFT officers in NRM (eg District Natural Resources, Environment and Lands Officer, District Forestry Officer, District Fisheries Officer, District Game Officer, etc) gives an unfavourably low extension ratio of 1 staff to 20-30 villages. Further, although graduates, most of these staff skills and past experience have been with conservation through protection and law enforcement and providing statistical reporting. They all need re-trained and re-tooled as extension officers in all the stages of developing and maintaining CBNRM, in the 6 steps and in wise use practices. The use of district officers to reach communities is expensive in travel allowances and demanding in terms of transport to the field. Costs would be prohibitive if messages continued to have to go from district HQ to village. Needed is more intermediate level extension agents as technician manpower placed at grassroots level (eg ward), or village based mentors, if CBNRM is to become effective! All the while, there is a need to empower that the support to the warrant officer (ie DED) has the capacity to assure quality control and accountability. The PA network (ie. marine parks, fisheries, forestry and wildlife), by contrast have 4-5,000 staff at ranger/warden/scout level, but few are trained in CBNRM. Most are traditionally conservation oriented, law enforcement and data collectors! If D*D in NRM sectors is to take off, it will mean re-assignment of 25-30% of these PA staff from anti-poaching to CBNRM duties, to increase outreach capacity, especially in joint management with boundary villages, a state of “social fencing” should prevail. Despite 10-20 years of pilot efforts in CBNRM, there is still a dearth of “easy to use”, “user friendly” sector guides (ie in Kiswahili). This means BMU, WMAs, PFM, WUG, etc have inadequate tools for the 4 MTEF targets, and more explicitly, for the 6 steps to user rights. They lack extension material, have limited operational tool kits and are short on best practice technology and how to do wise use guides! In addition, there are few opportunities for MDA and LGA staff to obtain in-service training in CBNRM. To achieve D*D, necessary will be a corresponding upgrade in teaching capacity of the NR colleges (like Mweka, Pasiansi, Nyegesi, etc). Needed is a new curriculum, re-orientation in training capacity, additional NRM Communication, Education and Public Awareness (CEPA) materials and how to do CBNRM guides. PFM and SWM have produced substantial tools towards this, but more is needed in these and other sectors. A concomitant upgrade in college infrastructure and equipment is required to increase the in-service and future needs training capabilities. Likewise, NRM community colleges (eg Likuyu Sekemganga, etc) also need upgrades to cater for user group capacity. Public service colleges (eg Hombolo, etc) will also need to be strengthened to increase training of LGA NRM staff in devolved Administration and Financial Management (AFM) under MTEF. In the latter, the harmonised PFM/SWM AFM Manual will be a key tool in explaining MTEF for CBNRM.

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Coupled with this is a need for more user friendly materials on “how to do” things. A CBNRM Tool Box for the 6 steps and a NRM AFM Manual, is called for. 9. What is Needed for NRM to Align under the Framework of LGRP II? To meet the goals of LGRP II, all NR SDP by 2014 will have to consider addressing the following 4 goals: 9.1. NRM Institutional and Political Framework to be D*D Compliant? Sector NRM policies and legislation to be translated into SDPs for explicit implementation under D*D. This will include dedicated allocation of centrally earmarked LGA funds for NRM. It will call for a complete overhaul of the technical, administrative and fiscal toolkits, guides, training aides, extension and CEPA materials, etc. A build-up of capacity in MDA and NRM colleges to deliver the technical support and training. This includes adapting the SWM/PFM AFM Manual as a universal tool to apply MTEF principles to all NRM sectors under D*D and building on the PFM and SWM thematic manuals, and extending this to WMA, BMU, WUG, etc. 9.2. LGA NRM Service Delivery Capability Enhanced? NRM sectors will need to increase their NRM manpower both at national, district and village level (ie ideally, at least 1 extension agent/ward) and consider re-assigning some PA staff to CBNRM duties as social fencing on their boundary. This would call for a mass training campaigns in the above developed CBNRM tools and techniques, as well as in AFM. The target would be: a) To empower the current 3-500 DFT, b) To recruit and train additional LGA extension staff and c) To re-train a large portion of the 4-5,000 PA staff as CBNRM agents. NR and Hombolo colleges will need investment, upgrades, new curriculum, retooling and scholarships to deliver this training. 9.3. Citizen Understanding and Participation in NRM? Once trained, the DFT and LGA extension technicians and counterparts need re-equipping (ie sufficient 4 WD vehicles and/or motorcycles, sufficient technical, extension and CEPA materials, manuals, guides, posters, leaflets, how to do guides, extension aides, all in Swahili and extension operation funds). Armed with CBNRM Tool Kits, they can now disseminate and spread the NRM reform process. Once communities have completed 6 steps, secured NR user rights, the on-going process would be for LGA to build up local capacity in best practices for wise use investments and technological advancement. Baseline research in the way of NR inventory and Strategic Economic Assessment (SEA) will help keep the focus on key priority sites ranked on the basis of pre-selected criteria of their NR’s economic significance to the community, district and national economy. Needed, will be financial and technical support to assist LGA to user level to implement the 6 steps to CBNRM or joint NRM. The AWB process will follow MTEF and go through the DDP process, using the adapted PFM/SWM AFM Manual as a user guide. Progress reports and M&E data vs baseline, will serve as a means of measuring success and feedback to LGA, MDAs and DPs to guide and direct future support to enhance citizen actions, research and training. 9.4. Make Effective LGA Implementation of NRM? Once CBNRM institutions are in place, LGA will need to backstop with technical guidance and up-dated training in best practices, and investments in wise use micro-projects, environmental mitigation, value added trade and product marketing. They will be supported by the MDAs in this. All the while LGA will need to ensure environmentally friendly investments, good governance and accountability and the inclusion and funding of village CBNRM plans into the mainstream of the DDPs calling on centrally earmarked funds. This calls for improved MTEF management systems, better coordination, performance monitoring and inbuilt feedback to provide on-going LGA capacity up-grades for quality assurance.

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10. What would DeNRM Support to D*D Look Like? DPs, PMO-RALG and NRM Line Ministries need to consider, under JAST that DeNRM is a support program to the NRM elements of government’s LGRP II. DPs support will become the means to facilitate D*D of NRM through assistance (financial and technical) to develop and implement respective sector SDPs. A phased approach is envisaged:

1. By end 2012: For government and DPs to agree on a strategy for a multi-SWAp DeNRM support (both

technical and financial) to LGRP II (ie the DeNRM Component Document) addressing MKUKUTA, climate change, population growth, etc.

2. By mid-2013: DPs and Treasury agree on the D*D Basket Fund for NRM, aligned to MTEF, operational through an agreed AFM Manual (based on the PFM/SWM document) and through the District Development Account, with sub-codes earmarked for NRM SDP support.

3. By mid-2013: DPs start to provide technical and financial support to NRM MDAs (ie PMO-RALG, MNRT, DLFD, etc) to develop their SDP for D*D, with a clear 10-15 year roll-out plan, to be ready by mid-2014.

4. From Mid-2013 Onwards: DPs provide technical and financial support to MDAs, from lessons learnt to date, complete the on-going development of the CBNRM Tool Box for all NRM sectors, with standardised tools for the 6 steps, best practice models and wise use thematic recipes (in fisheries, forestry, wildlife, wetlands, etc), tested and ready by LGRP III.

5. By Mid-2014: Strategy for support to upgrade the NRM colleges, implemented for curriculum, training materials, staff capacity and infrastructure for the first in-service trainees (ie MDA, LGA and PA).

6. By Mid-2014: Government to agree to reform the MDAs and LGAs, recruiting manpower, or transforming current PA staff to CBNRM agents, with plans for provisioning them with transport, equipment and re-training and re-tooling as extension workers, and tax based systems in place to retain at source revenues from trade in NR produce and services.

7. After Mid-2014: Once everything is in place, implement a phased outreach whereby firstly, 20 or so of the pilot SWM/PFM districts, are guinea pigs, to test the tool kits and training as test subjects for the first training courses, offering feedback how to improve.

8. By Mid-2014: The more advanced, 10-20 districts under the long standing PFM/SWM pilot program would be capacitated and ready to graduate from pilot to “full-fledged D*D operations” and phase out of DP support come under district earmarked funds and NR tax based revenue streams.

9. From 2015 onwards: Roll-out of the SDP strategy, adding new batches of 10-20 new districts each year until all districts are trained and practicing NRM under D*D.

10. 5 year Support per District: The financial and technical support to each LGA, for intense capacity development, technical and subsidised financial assistance would be 5 years, after which DP support should gradually phase out as LGA become capacitated, start to generate their own tax based revenue from NRM and operate fully under the mainstream of the earmarked, central government D*D Fund and local NRM revenue generation.

11. Pre-conditions for DeNRM to Work In-order to make DeNRM a government owned, needs based and demand driven process, a number of pre-conditions would have to be meet, notably:  a. LGRP Included in NR Sector Annual & 3 Year Strategic Plans: NR sectors take ownership and include

elements of D*D in their sector action plans, annual MTEF plans and 3 year Ministerial Strategic Plans as a short term basis for government and DPs to support.

b. Revival of Ministerial Task Force (MTF): NR sectors to revisit the MTF created in 2008, revive them and make them active according to TORs to steer the process of the sector implementation of LGRP.

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c. NR Sector Concept Note on SDP for D*D: NR Sectors develop a framework concept note on their vision aligned with LGRP to implement D*D for their sector as a pre-cursor to development of the SDP and as the basis for long term implementation and DP support.