institutional economics of african wildlife: new economic ... · complex wild (non-owned) systems....
TRANSCRIPT
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Institutional economics of African wildlife:new economic rules for a crowded planet
Brian Child22 March 2016
WRSA Workshop: A vision for a coherent African wildlife industry
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Outline
• Background
• Sustainable use approach – theory and results
• Lessons (rules of the game are critical and shape outcomes)
• Way forward
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Collapse of the World’s largest herbivores
William J. Ripple, et al. (2015). "Collapse of the world’s largest herbivores."
American Association for the Advancement of Science(1 May 2015): 12.
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Large mammals under serious threat
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Global threats to wildlife
Competition for landBu
shm
eat
IWT
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The big drivers
Areas used only recently
Exponential human population growth…
… drives people to live in “marginal” forests and drylands. Most of these people are poor … so conservation and poverty are linked
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Semi-Desert Dryland Savanna Agricultural Zone Forests and mountains
Simple Commodity economy • crop agriculture
‘Pro
fita
bili
ty’ o
f La
nd
Use
Bio-experience economy• Wild Resources• Ecosystem Services
Agricultural Sweet Spot
Expansion of people into forestsExpansion of people into
drylands
So simple commodity production systems replace complex hunter-gathering livelihoods
Simple, domestic (owned) commodity production systems
Complex wild (non-owned) systems
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Terms of Trade Commodity Agriculture
Bio-Experience Sector
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Terms of Trade for Bioexperience and Beef Commodity Sectors
Beef Price (1967 $/hundredweightx 10)
International Tourism Arrivals
Tourism spend $billion ($ 2005)
… so why is a resource that is becoming more valuable declining?… and can we use the high value of wildlife to save it??
Increasing value of bio-economy
Declining value of commodity agriculture
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Species that are owned(domestic) replace species that
are not owned (wild) REGARDLESS of their
underlying values
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Livestock Wildlife
Smil, V. (2011). "Harvesting the Biosphere: The Human Impact." Population and Development Review 37(4): 613-636.
MtC
1900 2000 1900 2000
Species that are owned (domestic) replace species that are not owned (wild) REGARDLESS of their underlying values
4.5X
half
100 years
10,000 years
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The incoherent economy of wildlife and the fallacy of “demand reduction”
Resource What happens if price goes up?
Tobacco Plant more
Livestock Grow more
iPhones Make more
Golf courses More
Wildlife Less (except, perhaps, in southern Africa)
Why?
• Value of biodiversity increasing
• Amount of biodiversity decreasingMarket/policy failure=
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What wildlife is left? 1970-now
48%20% 20-30%
100+%
5X!!
West Africa East Africa
Southern Africa
National Parks
OutsideParks
Craigie, I. D., J. E. M. Baillie, A. Balmford, C. Carbone, B.
Collen, R. E. Green and J. M. Hutton (2010). "Large
mammal population declines in Africa’s protected areas."
Biological Conservation 143: 2221-2228
There are only two places in the world
where wildlife is increasing …
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Why is southern Africa exceptional?
What lessons and principles emerge?
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H1: “The indigenous mammals had evolved in the country and were well-adapted to local conditions. Every available food niche was occupied…. Domestic animals were ruining the country. Why not crop the game?”
Bigalke, R. C. (1966). "Some Thoughts on Game Farming." Hand. Weidingsveren. S. Afr. 1: 95-102.
H2: Use it or lose it -wildlife replaced by cow and plough post-WWII
Cumming, D. H. M. and I. Bond (1991). Animal production in southern Africa: Present practices and opportunities for peasant farmers in arid lands. Multispecies Animal Production Systems Project Paper No. 22`. Harare, WWF Multispecies Project: 142p.
Starting Hypothesis (1961)+ Multispecies must be better+ Use it or lose it+ Train Africans (Mweka, Garoua)
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Southern African Regional Commission for the Conservation and Utilization of
Soil (SARCCUS)
Standing Committee for Nature Conservation, Wildlife Utilization and
Management (MUNC)
A Community of Practice that has been going for more than sixty years
African Special Project 1960-70s (FAO)
1960s
1990-2005
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Diversification of game ranching (with hunting as the foundation)
1960s – Cropping(Scientists; failed)
1970-2000 Safari HuntingLandholders; succeeded and evolved
+ 1990s – restocking & major land transformation back to bio-experience economy
+ Tourism
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Frontier economyFew institutions to control usewildlife decimated (bison)
Sustainable use approach (1960-)1. Make wildlife as valuable as possible2. Devolve proprietorship3. Neo-liberal allocation of resources
Over-exploitation.New technology (railways, guns) ✓ lowers cost of acquisition ✓ opens new markets
NP($ Viable)
NP (non-viable)
London Convention (1900/1933)1. Banned commercial uses2. Nationalized wild resources3. Established protected areas
(useless land)
Cow & Ploughreplacement by alternative
land uses (demographic growth x agriculture)
The changing political economy of wildlife
CCA
CCA
CCA
Private Conserv
ation
Private Conserv
ation
National Park (PA)
PreservationPublic access
Pre-modern economy✓ Challenge - to acquire wildlife✓ Institutions mainly for sharing✓ Collective action for ecosystem
services (himas)
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A brief history of conservation policy
FRONTIER
ECONOMY:
White expansion into
the interior of Africa :
•2 million animals
slaughtered
•2 extinctions, several
locally
Cow and ploughLondon Conventions
Fauna & Flora 1900, 1933
North Amercian ModelUSA/Theodore Roosevelt• Established protected areas• Centralised control of
wildlife• Restricted commercial use
“Conventional Conservation”
(in the mould of London Convention)
“Sustainable Use
Approach”
(radical changes to London Convention)
1960
Frontier Economy Nationalized (control/benefits centralized; costs localized)
Benefits & cost localized)
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Conservation Policy “North American Model”London Convention 1900, 1933,
USA/Roosevelt 1900
“Southern African Approach”Sustainable Use Approach
A. Protected Areas Conserve Fauna & Flora Conservation, Commercial funding modelAppropriate public goods (jobs, economic growth)
B. Wildlife Ownership Centralise in the state 1. PROPRIETORSHIP: Devolve to landholders / communities
C. Commercial Use Restrict / ban market hunting 2. PRICE: Make valuable as possible (humane)
3. SUBSIDIARITY (Scale down. Then scale up through delegated aggregation)
4. EVIDENCE-BASED STAKEHOLDER LEARNING (face-to-face + monitoring/data)
Key to recovery of wildlife in southern Africa • not technical or ecological, • but carefully crafted legal /
institutional measures to address “market failure”
Sustainable Use Approach
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Incoherence … especially when we try to apply a model from one systems to a radically different context
North American Model Southern African Sustainable Use Approach
Nature of the state Free market, democratic Centrally planned
Nature of wildlife sector
Socialist / centrally plannedCentrally ownedCentrally funded
Free market (local ownership)Devolved to landholdersFunded locally and through use
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More incoherence … especially when we try to apply a model from one systems to a radically different context
North American Model Southern African Sustainable Use Approach
Nature of the state Free market, democratic Centrally planned
Nature of wildlife sector
Socialist / centrally plannedCentrally ownedCentrally funded
Free market (local ownership)Devolved to landholdersFunded locally and through use
Baseline conditions • Rich• Urbanized• Highly functional
bureaucracy• Strong property rights• Citizens value outdoor
recreation, hunting, fishing
• Poor• Rural• Underfunded bureaucracy
• Property rights still evolving• Citizens concerned about
food, shelter, security
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More incoherence … especially when we try to apply a model from one systems to a radically different context
North American Model Southern African Sustainable Use Approach
Nature of the state Free market, democratic Centrally planned
Nature of wildlife sector
Socialist / centrally plannedCentrally ownedCentrally funded
Free market (local ownership)Devolved to landholdersFunded locally and through use
Baseline conditions • Rich• Urbanized• Highly functional
bureaucracy• Strong property rights• Citizens value outdoor
recreation, hunting, fishing
• Poor• Rural• Underfunded bureaucracy
• Property rights still evolving• Citizens concerned about
food, shelter, security
When does the model work?
When the state/public provides a whole lot of money
When wild resource is valuable (or valued locally)
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Game Ranching in Zimbabwe
• Parks and Wildlife Act, 1975 –– landholders become
appropriate authorities
– Maximize value of wildlife (remove restrictions)
• Natural Resources Act (1952) – groups of landholders regulate themselves
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Paradigm shift in policy: private and community wildlife management
e.g. Zimbabwe
Strategy: (PROPRIETORSHIP, PRICE)
• Give ownership of wildlife to landholder
• Maximize value to landholder
Results:
• Wildlife diversity and species expanded several fold on private land
• CAMPFIRE (community based wildlife management)
PP
PP
PP P
P
P
PP
P
P Private wildlife areas
Conservation area without
hunting
Conservation area with ownership and markets (hunting)
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Extending to communities through CAMPFIRE and CBNRM:
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Democratic revenue management
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CBNRM works … if done properly
Results
• Increase in wildlife. e.g. Namibia
• Decline in (rhino) poaching e.g. Sabie Game Park (Moz)
Future
• Promote community stewardship
• Do it properly
• Build stronger political foundation for sustainable use approach
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Some theory and lessons
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Subsidiarity: build from the bottom up
Three Tiers Wildlife and Landholder Policy
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Tier 1: Landholder
RIGHTS
To benefit
To manage
To allocate/sell
Law enforcement
Carry weapons in
wildlife area
Devolution is a
disciplined
process
contingent
upon
responsibilities
GovernanceInsist on:
Participatory democracy (scale must be face-to-face)
Individuals (not committees) control revenues
Village Assembly makes decisions (eg budget) and
instructs committee which is answerable to it without
usurping its mandate
RegulationRights contingent upon
being part of a
landholder
conservancy/forum
with regulatory powers
RESPONSIBILITIES
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Tier 2: Group
RIGHTS
To benefit
To manage
To allocate/sell
Law enforcement
Carry weapons in
wildlife area
Devolution is a
disciplined
process
contingent
upon
responsibilities
GovernanceInsist on:
Participatory democracy (scale must be face-to-face)
Individuals (not committees) control revenues
Village Assembly makes decisions (eg budget) and
instructs committee which is answerable to it without
usurping its mandate
RegulationRights contingent upon
being part of a
landholder
conservancy/forum
with regulatory powers
RESPONSIBILITIES
Intensive Conservation
Area/Conservancy
1. Regulate abuse of wildlife
2. Regulate governance
3. Monitoring
4. Authority for collective
zoning, quotas, etc.
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Tier 3: National
RIGHTS
To benefit
To manage
To allocate/sell
Law enforcement
Carry weapons in
wildlife area
Devolution is a
disciplined
process
contingent
upon
responsibilities
GovernanceInsist on:
Participatory democracy (scale must be face-to-face)
Individuals (not committees) control revenues
Village Assembly makes decisions (eg budget) and
instructs committee which is answerable to it without
usurping its mandate
RegulationRights contingent upon
being part of a
landholder
conservancy/forum
with regulatory powers
RESPONSIBILITIES
Wildlife Landholder Forum/Conservancy
1. Regulate abuse of wildlife
2. Regulate governance
3. Monitoring
4. Authority for collective zoning
National
1. Guardians of public interest
(ultimate inspectorate)
2. Mechanism of appeal (time
bound) NR court
3. Liability for costs of arbitrary
bureaucratic delays / restrictions
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Different laws, different outcomes: game ranching in Zimbabwe
• Outcomes – shift to large blocks of wildlife land without internal fencing
Zimbabwe 1980-2000 South Africa
Legal basis • Ownership (P&WL Act)• Local control of each other (NR
Act)• Spirit of the law:
• proprietorship x • price x • local empowerment• Legally empowered producer
organizations
Theft of animalsAdequate enclosureTOPS
Wildlife Rapid increase Rapid increase
Landscape Large, no internal fencing10,000 – 350,000 hectares
Fragmentation, lots of fenced properties
Governance Private ownership as a foundation for bottom-up democratic control• Natural Resource Board• Wildlife Producers Association
Fragmented, conflicts
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For Landholder (Financial)
Meat Meat
Hunting
Tourism
Ecological inputs
Eco
no
mic
ou
tpu
t
Meat Viability
Shifting from a Commodity Economy to a Bio-Experience Economy
Beef – commodity productionWildlife – bio-experience economyComparative advantage
Conservation / Green Economy
= more from less= economic efficiency
= ∑Private + Public GoodsEcological Footprint
• dematerialization• resource decoupling
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Economic Multipliers
Vertical Integratio
n in SectorProfit
to Land
Economic Multipliers
Vertical Integration
in Sector
Profit to Land
For Landholder (Financial)
Meat Meat
Hunting
Tourism
Ecological inputs
Eco
no
mic
o
utp
ut
Meat Viability
Eco
no
mic
ou
tpu
t
Shifting from a Commodity to a Bio-Experience Economy
Beef – commodity productionWildlife – bio-experience economy
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Model behind Sustainable Use Approach(developed by Greg Stuart-Hill and Chris Brown)
Rangeland Production System
$ Primary Production
Secondary Production$ Profit $
Soil, water, sunlight
Agricultural Production System
Primary Production
$ Profit $
Soil, water, sunlight
Rainfall (land productivity)
Pro
fita
bili
ty o
f la
nd
use
Wildlife more profitable according to ‘natural’
prices
Agriculture more profitable a in areas of
high rainfall & soil fertility
Policy failures drive down price of wildlife
Subsidies inflate profit of livestock
+- 600-700mm
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London Convention (1900, 1933), Theodore Roosevelt (c1900)
Threat: market hunting at the frontier of European expansionResponse:1. Protected Areas2. Ban commercial uses of wildlife (CITES)3. Centralize control of wildlife in the state
No
rights
Policy failures drive down price of wildlife
+- 600-700mm
Ban
s on
Use
Val
ue
Rainfall
Wildlife Area
Differen
tial regulatio
n /
‘taxation
’
Wildlife Area
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No Hope Economy
Wild resources replaced resources
that are:
• more valuable
• privately owned
Frontier Economy
Wild resources decimated
• poaching
• unsustainable harvesting
(tragedy of the commons)
Subsidised PA Economy
(subsidized)
Wildlife resources conserved
(often for non-financial reasons):
• Clear boundaries (parks)
• Subsidised protection.
Sustainable Use Approach
Wild resources conserved:
• they are valuable
• value is captured by
landholders and communities.
low Price high
weak
Pro
prieto
rship
stron
g
Proprietorship-Price Model
- Price (0+0)0+0 FLAWS
1. Lowers incentives for conservation (habitat loss is the greatest threat)
2. How do you stop demand?
3. Shifting market into criminal hands
4. No information, no adaptive management
+ p
rop
riet
ors
hip
P+P CHALLENGES1. Creating
proprietorship is politically challenging
2. But it works
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But our world is threatened
• Bans on use driven by Western special interest
• Our own poor governance
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Hunting is sustainable, highly profitable and ecologically robust … but threatened by Cecil and Twitter
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Thinking fast
Thinking fast
• Anti-hunting vs SU
• Unfair world
• Crowded planet
• Disney versus man-eaters
• Wildlife versus poverty
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Policy by Twitter, media hype and celebrities – thinking far too fast and shallow
• Cecil was killed on/about 1 July 2015
• Tweets started in USA and Zimbabwe 2 weeks later
• Five day frenzy from 29 July
• The story never set Africa alight, and was confined to urban areas
• http://wcmc.io/cecil
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Thinking slooow …
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Lions and land use history in Zimbabwe
Cattle ranchers outside Hwange NP switched to wildlife in the late in the late 1990s:
• Got wildlife ownership rights
• Wildlife (hunting) more profitable than livestock.
• Lions– 25,000-30,000 lions in
Africa. – Zimbabwe sells 42-49
license annually.
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Sustainability: the mathematical robustness of trophy hunting
Input 20%Offtake 2%Net 18%
Hunting:
landholders cash flow in transition from cattle to wildlife
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Global markets create value /wealth (trophy)sustainable but not socially acceptable (in the West)
$0
$2,000
$4,000
$6,000
$8,000
$10,000
$12,000
$14,000
$16,000
Trophy Hunting Bush meat
Daily rate
Trophy Fee
…locked in low value subsistence uses … high offtake
…high value global uses make wildlife competitive … low offtake
20X
(Outfitter)
(Landholder)
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Locked in low value, local (bushmeat) markets:not sustainable but socially acceptable
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Locked in low value, local (bushmeat) markets:not sustainable but socially acceptable
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Hunting takes people of Sankuyo out of poverty ban turns them back into destitute
Household Income
• 56% from wildlife (mainly hunting)
• <1%) from agriculture
• 40% from town
HH income with wildlife
Income after hunting ban
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… but we have to get GOVERNANCE right …
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Effectiveness of hunting depends on governance
0
50,000
100,000
150,000
200,000
250,000
Well organised hunting Poorly managed hunting No hunting
Elephant Population in Southern/East Africa1960 - 2000
1960 2000
South AfricaZimbabweBotswanaNamibia
ZambiaTanzaniaMozambique
Kenya
1960 2000
Hunting income partially/not returned to landholder
Hunting income returned to landholder
1960 2000
No hunting
1960 2000
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The outcome for Cecil and other wildlife depends on governance (fiscal devolution/ownership)
• How do we know if hunting is sustainable and driving land use changes?– Was Cecil hunted legally?
– Was the hunter ethical?
– Did the $50,000 paid for Cecil get to the landholder?
• Sustainability is about governance (ownership and benefit sharing)
• In weak states, ‘bad’ hunting outfitters outcompete ‘ethical’ outfitters because communities have weak rights
$50,000
?
Client
Outfitter
LeakageBad governance
Sustainable use –ecologically, socially, economically
?
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The way forward
What to Do: Empower good hunting to squeeze out bad hunting
• Standards/ certification/ responsibility
– Buy hunting only where ALL benefits go back to the landholder / community that produces wildlife
– In the case of communities, check that finances are used equitably (another whole story)
What not to do: Blanket ban on hunting
• Measure such as:– Blanket bans of hunting
– Stop carrying trophies on planes
– Give money to single species/cause special interest
• Punish the good (more than) the bad
• Reduce value of wildlife
• Remove its ability to compete for land
• Shift power to the central/global (political) marketplace
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• Are we going to self-regulate, or are we going to sit back while others regulate us?