Making the community to policy connection:
A ringside view to the World Parks Congress-2003

Bahar Dutt

(A WTI consultant, Bahar writes a personal account of the issues facing this important policy meeting. She works for the rehabilitation of snake charmers in northern India and attended the decennial World Parks Congress in Durban, South Africa).

Representatives from all over the globe at the Congress

The 5th IUCN World Parks Congress was held in Durban, South Africa from 8 to 17 September, 2003. The IUCN World Congress on Protected Areas is a 10 yearly event that provides a major global forum to set the agenda for protected areas (PAs). It offers a unique opportunity to take stock of protected areas, provide an honest appraisal of progress and setbacks and chart the course for protected areas over the next decade and beyond.

As a delegate at the World Parks Congress, I was helping out at the ‘Community Park’, a physical space created for all community representatives, indigenous and mobile people, to make sure their voice was heard by the policy makers. This was the first time that community members from different parts of the world had gathered in such large numbers at the World Parks Congress. The Community Park was dedicated to spotlight stories from grassroots, sustainable development victories by community level action around the world and to encourage dialogue about future challenges for protected areas.

As the World Parks Congress opened on September 8th at Durban, participants were welcomed into the Community Park by songs from a local choir of disabled youth from a South African school. The proceeds from this performance were to be used to purchase musical instruments and equipment. The ‘Community Park’ was inaugurated in a solemn ceremony by a Zulu leader who lit a fire and requested his ancestors to ‘bless the space’. Representatives of indigenous communities and mobile communities held hands and prayed that they would be able to meet their objectives at the World Parks.

As I observed the ceremony, I wondered whether the community members, in this whole melee of ministers, policy makers and CEOs of leading organizations be able to hold their sway? I was skeptical. Would all these community people who had traveled so far be able to influence policy related to parks or access to wildlife resources. I wondered. The coming days would tell.
On the first day, Achim Steiner, IUCN Director General and WPC Master of Ceremonies, welcomed all participants, and highlighted the accomplishment in designating at least 10% of the earth’s surface as PAs.

Nelson Mandela, former President of South Africa and Congress Patron, stressed the need to involve youth in PA management, and to consider PAs’ contribution to poverty alleviation. Thabo Mbeki, President of South Africa, drew attention to the UN Millennium Declaration and the Johannesburg Plan of Implementation, identified poverty and under-development as major threats to nature conservation and commended the New Partnership for Africa’s Development (NEPAD) for combining environmental and social goals.

An indigenous community leader

Two days into the conference, as I walked from one Congress session to the other at the Durban International Conference Centre, I was struck by the strong presence and sheer diversity of local communities. Masaais from Kenya, Maoris from New Zealand, Rabaris from India, they were present in all the sessions or workshops of the Congress, to make sure their voices were heard.

I was not the only one struck by their presence. Richard Leakey, two days into the Congress, at a plenary workshop expressed concern on the ‘indigenization of conservation’ and whether this was turning into a ‘political agenda’. The strong presence of local communities made many uneasy.

Back at the ‘Community Park’, we had organized a special session. A dialogue between local community leaders and CEOs of international conservation organizations. The dialogue proved to be groundbreaking in many ways as this was the first time that community leaders could have a direct dialogue with global leaders of NGOs. As John Croxall head of Birdlife International stated “this was the first time I have realized that mobile people have a significant impact on ecosystems and we need to take into account their presence when we design policies for bird habitats”. Similiarly, Steve Mcormack, President, Nature Conservancy, after listening to the testimonies of indigenous people who had been displaced from their lands after the declaration of their area as protected said, “I stand here humbled by your statements.

I cannot believe that people have been moved from their lands for wildlife conservation. Nature Conservancy would like to support conservation projects that work with people. The theme of this Congress is benefits beyond boundaries. We need to in fact look at benefits without boundaries”. Russell Mittermier, President of Conservation International assured indigenous leaders that his organization, in all their conservation projects around the world, ensures that they work in close coordination with local communities

A session in progress

As I facilitated the dialogue, indigenous leaders came forward to give their testimonies. It was heartening to note that the global leaders had not come with any pre-conceived notions and were willing to listen with an open mind. They were not defensive and in fact quite keen to understand how their policies could translate into effective policies for community based conservation within their respective organizations.

Perhaps a fitting end to the days’ session was the arrival of a group of youth leaders who had cycled through protected areas that spans South Africa, Zimbabwe and Botswana. These youngsters, from communities located within the Limpopo Transfrontier Park, rode 990 kms to come to Durban. Along the way, they spoke with their communities and others to gather messages to bring to the World Parks Congress. They were welcomed to the Congress by Achim Steiner head of the IUCN.

As an Indian, perhaps one of the most enjoyable evenings was the ‘India Nite’ which we decided to organise at the ‘Community Park’ on Saturday, 13th September. It was ironic that so many of us as Indians were participating at the Congress but had not sat together for even one evening. There did seem to be much bonhomie and cheer as we all sat together to share our experiences of the World Parks. Boro, a ranger from Kaziranga National Park, shared his experiences of being at the Congress. Kanhaiya from Rajasthan said, “I am delighted to be here, at first it all seemed like one big mela. But I have realized that some important issues are being discussed here. And it is good to meet communities from other parts of the world who are facing similair problems like us”. Vijay Jardhari from Uttaranchal spoke about the Chipko movement and how his community had saved the forests from being cut in Northern India.

The Indian delegation

Mr Vinod Rishi who was leading the Indian delegation expressed his apprehension about the strong presence of communities and said, “there are people here who are talking about their rights. I am worried who is going to talk about the thousands of animals, plants and trees and their rights”.

Despite differences in opinion between NGOs, community leaders and government officials from India, at least, for that one evening it was heartening to see forest officials, community leaders sharing the floor together (literally!).

10 days has gone by and it was the final session of the World Parks Congress. The WPC-2003 had proved to be historic in many ways. Never before had so many community leaders participated. Although I had been apprehensive of how meaningful their presence would be, I was wrong. The Durban Accord, the main output of the Congress, proposes a new paradigm for PAs that integrates conservation goals with sustainable development in an equitable way.

Celebrating the diversity of nature and cultures, the multiple benefits from PAs, and successes in their conservation, the Accord highlights a number of concerns, including a lack of recognition of the conservation efforts of local communities and mobile and indigenous people. A recommendation has also been made for an ‘International Commission on Truth and Reconciliation’ for people who have been displaced from protected areas

Every evening, I would observe community leaders, who could not even understand each others’ language engage in hectic lobbying for their rights with policy makers. This had paid off to a great extent.

As 3000 delegates who had gathered at Durban for the historic Congress, boarded their flights home, it was clear, that globally there had been, at least at the policy level, a paradigm shift in conservation policy. One which recognised the rights of local communities and the need to end the ‘fences and fines approach’ to conservation. How this policy translates into an effective regime for conservation and community participation at the local level is what remains to be seen.

(Bahar Dutt was involved in the Community Park which was supported by Conservation International, The Equator Initiative, IUCN, The Nature Conservancy, TILCEPA, GEF/UNDP Small Grants Programme and UNDP.)