Gender and Social Inclusion Assessment and. Mainstreaming Strategy for. Protected Area and Buffer Zone Management

Transcription

1 Gender and Social Inclusion Assessment and Mainstreaming Strategy for Protected Area and Buffer Zone Management Prepared By Anju Upadhyaya April 2013

2 Table of Contents Acknowledgement... ii Abbreviations... iii 1. Introduction Background Rationale for the Strategy Development Guiding Principles from the Gender Perspective Gender and Social Exclusion in Nepal The Context Political Instruments Mainstreaming Gender and Social Inclusion in Development Integration of Gender and Social Inclusion in Biodiversity Conservation Methodology of the Strategy Development Scope of the Strategy Change Areas Major Findings Issues and Gaps Hindering Factors, Constraints, Opportunities and Challanges GESI Mainstreaming Strategy Strategy and Recommended Actions Major Interventions Entry Points Recommended Responsibilities Gender and Social Inclusion: Monitoring and Evaluation Expected Outcomes References Annexes i

3 Acknowledgement It would have not been possible to complete this assignment of assessing gender and social inclusion issues and gaps in Protected Area and Buffer zone management without the generous assistance of many people during preparations, field visit and discussion. I would like to express my gratitude to Senior Livelihoods Expert of WWF Mr. Tara Gnyawali in helping to design and undertake field visit and for supporting throughout this task. My special thanks are due to my team members Ms. Jeni Thapa and Ms. Hem Kumari Lama for assisting me in preparations, field visit and discussions. I would like to thank Ms. Hema Bhusal for her untiring support during field visit. Likewise, my special thanks go to Mr. Rupak Maharjan for supporting me in many ways during this task. I would like to thank Ms. Radha Wagle from the Ministry of Forests and Soil Conservation, Mr. Bhupendra Yadav from Department of National Parks and Wildlife Conservation, Dr. Jhamak Bahadur Karki, Chief Conservation Officer of Chitwan National Park, Mr. Ram Dev Choudhary, Assistant Conservation Officer of Langtang National Park for their considered views on gender and social inclusion along with mainstreaming strategies. The assessment took place in Chitwan and Langtang National Park and Buffer Zone where communities and local officials eagerly shared their experiences, stories and hopes. My special thanks go to BZ council, BZ Committees, BZ Community Forest User Groups, Cooperatives, Eco-Clubs, CBAPOUs for participating in consultation and digging out gender and social inclusion issues and their views. I would like to thank TAL and SHL field project team for their support during field work. At last but not the least I would like to thank WWF team for understanding and respecting the situation I had gone through during this assignment. ii

4 Abbreviations BZ BZCFUGs BZUCs BZUGs CBAPOUs DNPWC GESI GoN ICDP IGA MOF MoFSC NRs. NTFPs PABZ WWF Buffer Zone Buffer Zone Community Forest User Groups Buffer Zone User Committees Buffer Zone User Groups Community based Anti Poaching Units Department of National Park s and Wildlife Conservation Gender and Social Inclusion Government of Nepal Integrated Conservation and development Project Income Generating Activity Ministry of Finance Ministry of Forests and Soil Conservation Nepali Rupees Non Timber Forest Products Protected Area and Buffer Zone World Wildlife Fund iii

5 1. Introduction 1.1 Background In 1996, the Government of Nepal initiated the Buffer Zone (BZ) management policy in the protected areas. The Buffer Zone programme in Protected Areas is the participatory policy intervention in Nepal to link biodiversity conservation with people s livelihoods. The programme has opened up space for local people participation in conservation activities through a multi-tier institutions arrangement i.e. Buffer Zone Council, Buffer Zone Management Committee, Buffer Zone User Committee, Buffer Zone User Group. The community around the Protected Area are engaged in institutional as well as community development activities from 30%-50% share of conservation income of the Protected Areas. The program has made achievement in the aspect of community and infrastructure development, regular supply for forest products, financial strengthening through savings schemes in groups. Nevertheless, some issues like elite capture and weak inclusion of marginalized groups in decision making and benefit sharing in PABZ management system have also been raised from time to time (Paudel et al., 2007). Besides, there is a rising debate on whether the Buffer zone policy and programs has recognised the livelihood of socially and economically disadvantaged groups and has addressed the issues of gender and social inclusion (Gurung et al., 2008). The need for this strategy arises both from the evidence that gender and social inclusion plays an important role in determining economic growth, poverty reduction, sustainable biodiversity conservation and development. 1.2 Rationale for the Strategy Development The Convention on Biological Diversity (1992) in its preamble recognizes the vital role that women play in the conservation and sustainable use of biological diversity and affirms the need for the full participation of women at all levels of policymaking and implementation for biological diversity conservation. Globally, many evidences have demonstrated that when women and men are relatively equal, economies tend to grow faster, the poor move more quickly out of poverty, and the well-being of men, women, and children is enhanced. 1

6 The existing forest and biodiversity policies in Nepal show that the Gender and Social inclusion issues have been inadequately addressed into the forests and biodiversity conservation laws, policies and guidelines. Gender and Social inclusion need to be more central to all policy development and their mainstreaming is regarded as pivotal in sustainable development and biodiversity conservation. WWF Nepal has been working since 1967 in the field of conservation with GoN and it started its physical presence since 1993 focusing on Species conservation integrating with conservation and development model (ICDP). Most of the communities involved in conservation in partnership with WWF Nepal are highly depended on forest and other resources for their daily lives and affect biodiversity conservation. A majority of the community in which WWF Nepal works for conservation is dependent on natural resource where the socially constructed roles of men and women are diverse in the society. The societies are heterogeneous with respect to class, race, ethnicity, age, gender, and socioeconomic status, etc. and have socially constructed diverse roles. In addition, the role of women members of the households is highly connected to the use and conservation of forest resources and thereby biodiversity conservation. The national priority of conservation focuses on Gender and Social inclusion consideration in program planning, implementation and monitoring and WWF s policy and guiding document have also prioritized gender sensitivity in biodiversity conservation. Further, the TAL-Nepal vision also supports the Tenth Plan's strategies, the Millennium Development Goal which has highlighted Poverty reduction, promoting gender equality and women empowerment (TAL, 2004). The strategy aims to recommend the measures to bring an equitable and meaningful participation of both women and men and excluded groups of the community to achieve the sustainable biodiversity conservation. Further it intends to enable reaching less empowered, socially backward, less economically capable households to increase access to resources and benefits and on decision making contributing to conservation and environment and livelihood improvement. From gender perspective, this means ensuring that both women and men have a meaningful representation and voice in conservation of the resources, both are equally participated in decision making process and are able to 2

7 benefit from the new opportunities derived from conservation, both have access to the resources, and both share in a higher level of well being. The specific objectives of conducting Gender and social inclusion assessment are as follows: To analyse the existing issues and gaps in practices, process and perceived knowledge of people involved in PABZ system in selected sites To build the understanding of WWF's gender and social policy, equity with special context to PABZ management system To develop specific recommendation to implement gender and social policy with special context to WWF and Nepal To build capacity of management Committee implementing effectively Gender Budgeting, Gender Auditing process methodology in PABZ system 1.3 Guiding Principles from the Gender Perspective WWF Strategic Plan ( ) has identified four cross cutting themes over its different conservation themes, viz. Sustainable livelihoods, Policy and advocacy, Conservation education and Capacity building, and Communications and marketing. Guiding Principles Implementation of the recommended gender strategies put forward in this document will be guided by the following principles (See Box: 1). Conservation can only be successful in the long term if strategies are based on, and compatible with, peoples current ways of living, their social, political, cultural environments, and ability to adapt. Conservation should aim to deliver positive benefits for those people who are dependent on environmental goods and services, and who bear the costs of conservation, environmental degradation and extreme events. Conservation should build on local strength, illustrate conservation and livelihoods linkages in tangible forms, holistic and adaptive in nature and place the livelihoods issue as major at the centre of conservation programme. 3

8 Conservation should ensure social equity of excluded and discriminated groups among the natural resources users on access, use, control over and decision making process. Box 1: Guiding Principles Ensuring equability Empowering women, deprived and disadvantaged groups Building partnership Being adaptive and holistic Sustainability Macro micro linkage Building on local strengths Livelihoods issues centred Source: (WWF/N, 2011) WWF Nepal also complies with the WWF Network Policy on Gender (2011) developed by Social Development for Conservation Global Team-SD4C and approved by WWF Conservation Committee that emphasizes inclusion of gender and social issues in WWF conservation. WWF Nepal s efforts focus on integration and reflection of such national and network policies in the local context. WWF Nepal is constructively engaged in biodiversity conservation so as to help establish sustainable livelihoods of the dependent people. Gender and Social inclusion have been the primary consideration in this mechanism. Box 2: WWF's Gender Policy Statement The objective of the Gender policy statement of the WWF is to ensure that WWF s conservation policies, programmes and activities benefit women and men equally and contribute to gender equity, as part of WWF s broader commitment to strengthen the social dimensions of its projects, programmes and policy work. It describes the rationale for gender mainstreaming in the context of WWF mission, biodiversity and foot print goals and outlines WWF commitment to integrate a gender perspective in our programmatic and operational structures and procedures (WWF, 2011). 4

9 2. Gender and Social Exclusion in Nepal 2.1 The Context Gender discrimination and social exclusion is ingrained in the political, economic, cultural, religious, and social fabrics in Nepal. Since last many decades and centuries, the patriarchal system assigns women a subordinate status and position in Nepalese society. As Nepal was a Hindu kingdom since the beginning until 2007, the Hindu caste system has traditionally interwoven in Nepalese culture which has categorized people into four groups in a hierarchal order: the Brahmin (scholars and priests) at the top, the Chhetri (warriors) just below, then the Vaishyas (merchants and traders), and lastly, below everyone the Sudras (peasants/labourers) who were the occupational groups and Dalits- the so-called untouchables (Bennett et al., 2006). The Civil Code of Nepal (Muluki Ain), 1854 legally formalized the hierarchical and highly rigid caste system and brought the AdivasiJanajatis (Indigenous and Ethnic group) into the system with middle-rank status. Despite the abolition of caste-based discrimination in 1963, power still remained in the Brahmin, Chhetri, and Newar caste groups in the hills region as the social hierarchies and divisions remained same. The consolidation of economic and political power by these groups led to further marginalization of the AdivasiJanajatis and the Madhesis, the southern plain dwellers of the Terai, who were not even included in the Muluki Ain (GoN, 1854). The patriarchal system also assigns women a subordinate status and position in the society, which was reflected in state-based discrimination. The new Constitution formulated after the establishment of multiparty democracy in 1990 described Nepal as a multi-ethnic, multi-lingual, Hindu democratic state and declared all citizens equal. However, the political parties, who were dominated by the Brahmins, Chhetris, and Newars, so-called upper-caste holders, did not address the disproportionate representation in governance structures, but rather maintained the status quo. Although, the Interim constitution of Nepal, 2007 (GoN, 2007b) declared it as an independent, indivisible, sovereign, secular, inclusive and a fully democratic State, the anchors of traditional Hinduism and patriarchal system has not been uprooted yet from Nepalese society which has been showing multidimensional effects in many development and conservation programs (GoN, 2007a). 5

10 Box 3: Explanation of Key Terms Gender: It is about gender roles, needs, interests and relations which are determined by the position of women and men which is socially, culturally and politically constructed in their respective societies. These roles derive from the cultural, religious, historical and ideological contexts, beliefs and customs of individual societies (SNV, 2008). Social Exclusion: Describes the experience of groups that are systematically and historically disadvantaged because of discrimination based on gender, caste, ethnicity, or religion. Exclusion occurs in public (formal) institutions such as the legal or education system, as well as social (informal) institutions such as communities and households (ADB, 2010). The Ministry of Local Development and Federal Affairs (MLD) defines social exclusion as the situation of the groups or communities that have become backward, or have been made backward over a period of time, by discrimination on the grounds of caste, ethnicity, tribe or nationality, sex, disability, age or religion. The Ministry categorises women, Dalits, Janajatis, Madheshis, Muslims, children below the age of 16 years, senior citizens above the age of 60 years, persons with disabilities and people living in geographically remote areas as socially excluded groups (MLD/GoN 2010). Social Inclusion: The removal of institutional barriers and the enhancement of incentives to increase access by diverse individuals and groups to development opportunities. This requires changes in policies, rules, and social practices and shifts in people s perspectives and behavior toward excluded groups (ADB, 2010). Gender mainstreaming is the process of understanding any planned action, policy, programme, or other kind of intervention with regard to the implications for women and men of all ages from childhood to old-age. It is a strategy for making the concerns and experiences of women as well as men an integral part of a process, whether in the design of a new activity or the evaluation of existing or past activities (DFID, 2009). Janajatis: People or communities having their own mother tongue and traditional customs, distinct cultural identity, social structure, and written or oral history. Interchangeably referred to as Janajatis, ethnic groups, and indigenous nationalities. The government identified 59 groups as indigenous nationalities and these are categorized into 5 groups based on their economic and sociocultural status. Dalit: A designation for a group of people traditionally regarded as "untouchable" within the Hindu caste system. Madhesis: The deinition of Madhesi is politically contested, but in broad terms it refers to the people who have languages such as Maithili, Bhojpuri, Awadhi, Urdu, and Hindi as their mother tongue and are consid-ered of Madhesi origin. They include Madhesi Brahman Chhetris (2% of the population), Madhesi other caste groups (13% of the population), and Madhesi Dalits.b Their exclusion is based primarily on regional identity and language. 6

11 2.2 Political Instruments The Interim Constitution of Nepal has declared Nepal as an independent, indivisible, sovereign, secular, inclusive and a fully democratic State. This includes several provisions that support gender equality and social inclusion in many ways. It has a separate article for women s fundamental rights (Article 20) and is more inclusive toward Janajatis, Dalits, and Madhesis. It sets forth the right to equality and to rights against untouchability, racial discrimination, and social or any kind of exploitation. It refers to the need to be proportionately represented from all groups in the state structure (Article 21). It also authorizes the State to implement measures for the protection, empowerment and advancement of women, Dalits, indigenous nationalities, and Madhesis (Article 13) (GoN, 2007b). Nepal is a signatory to and has ratified a number of international commitments to nondiscrimination, gender equality, and social justice. The Convention on the Elimination of All Forms of Discrimination against Women was ratified by Nepal in 1991 (UN, 2000). The 1995 Beijing Platform for Action has also provided the momentum to address gender inequality. The Government of Nepal formulated a national plan of action to implement the 12 critical areas of concern, including women and poverty, power and decision making, women and environment, women and the economy, etc (UN, 1995). The 2000 Millennium Development Goals (MDGs) has set out targets for poverty reduction, gender equality and women s empowerment, universal primary education, and maternal health. Similarly, the United Nations Declaration on the Rights of Indigenous People and International Labour Organization (ILO) Convention 169 (Indigenous and Tribal Peoples' Convention) rectified in 2007 shows its commitment to the rights of indigenous nationalities. As Nepal is a signatory of the International Convention on the Elimination of All Forms of Racial Discrimination 1971, it is obligatory for Nepal to secure the human rights of Dalits. However, until and unless the socio-cultural norms and values as well as traditional attitude of people towards gender and social exclusion remain unchanged, there will be limited improvement in the discriminatory practices. 7

12 2.3 Mainstreaming Gender and Social Inclusion in Development The gender discrimination in Nepal was addressed in development process as a welfare approach with focus to reproductive health in the First Five Year Plan ( ). The Sixth Plan ( ) introduced women in development approach with focus to equity. There was a paradigm shift in development approach in The Ninth Plan ( ) brought in Gender and Development approach with focus on gender mainstreaming. This was followed in the subsequent Tenth Plan ( ), and is being continued in successive Three-Year Plans. The concern of the Adivasi Janajatis has been addressed since the Ninth Plan ( ). The Tenth Plan ( ), Nepal s Poverty Reduction Strategy Paper, included separate chapters on Dalits and Adivasi Janajatis and identified specific programs to be implemented (GoN, 2002). This was the first and most comprehensive statement about inclusion and had three pillars related with Gender and Social inclusion: Social sector; Targeted programs and local development; and Good governance, development administration and human rights. The Ministry of Women, Children and Social Welfare is the key ministry for the promotion of gender equality and women s empowerment and has gender focal points in the districts. Gender Equality and Social Inclusion Units have been formed in some of the ministries like the Ministry of Local Development, Education, Health and population, Finance, etc. The Ministry of Finance has established a inter-ministerial Gender-Responsive Budget Committee with the mandate to design the methodology to monitor budget allocations from a gender perspective. The National Planning Commission has developed a gender management system for classification of programs and projects using the gender code in The Ministry of Local Development has formulated a Gender and Social inclusion Budget Audit Guideline (2008) to guide local bodies in mainstreaming gender into the planning and program cycles (MoLD, 2008). Recently, Ministry of Finance has developed a Gender Responsive Budget Guideline, 2012 (MoF, 2012). Many of the ministries are trying to Mainstream Gender and Social inclusion in Development processes in the government led programs in Nepal. In addition there are several national and international nongovernmental organizations working for gender empowerment and social inclusion in the country. 8

13 2.4 Integration of Gender and Social Inclusion in Biodiversity Conservation The importance of natural resources in general and the forests in particular to the biodiversity conservation and sustainable rural development has been well recognized in the countries like Nepal. In such scenario, a justful balance between conservation and development cannot be achieved without a clear understanding of gender differentiated roles and responsibilities in the society and well integration of Gender and Social inclusion dynamics in the programs. The literatures so far available have shown that the Gender and Social inclusion aspect have been little addressed in the areas of forestry and biodiversity conservation in Nepal. As in other policies and organizations, forestry has been taken as the work of men, so that the women s involvement, role and interests have long been omitted in this sector by the male dominated society in the country. Only after the introduction of participatory forest management, the participation and contribution of both women and men have been recognized in community forestry, watershed and biodiversity conservation. However, this is varying based on the physiographic region, caste and ethnicity, the importance and value of the resources being managed, the education level and capacity of men and women, and other politico-cultural factors in the society. At policy level, the Government of Nepal has introduced Gender Strategy and Action Plan in Similarly, The Interim Constitution of Nepal, 2007 is forward looking in equity and positive discrimination towards women and socially backward/excluded communities, and it is effective in all the sectors including forest and biodiversity conservation as well. There are about two dozen rules already made in favour of women and socially discriminated people. The weak enforcement of such laws by the implementation agency has been blamed as one of the major reasons behind the disparities on Gender and Social discrimination at implementation level. In Nepal, the forestry sector holds stronger approach to Gender and Social inclusion comparing to other natural resource management sector. The Ministry of Forests and Soil Conservation has introduced Gender and Social inclusion Strategy (MoFSC, 2007). This strategy has identified major four areas of intervention to include Gender and Social inclusion into the mainstream of forest management and biodiversity conservation. The 9

14 Community Forestry Development Guideline (2008), introduced by Department of Forests, promotes proportionate representation of poor, women, Dalits, Ethnic and Indigenous groups in the executive committee (DoF, 2008). Further, it promotes the equal rights for users' membership by enlisting both male and female of the households as community forest user group member in their constitution. This has been already a practice in Leasehold Forestry and Livestock Program as well. Likewise the Guideline promotes capacity enhancement and positive discrimination for women and other marginalized groups in benefit sharing and income generation activities including forest based enterprises. It has mandate that women should be in any of two key positions in the executive committee, either Chairperson or Secretary and representation of 50% women in the committee is a must. Likewise, there is a compulsion to allocate 35% of the income of the forest in pro poor activities. Regardless of success, community forestry is also not free of critical issues and challenges. Elite capture in the executive committee and somewhat centralized decision making system has marginalized poor members of the community in some specific cases. In the sector of Protected Area Management, the Buffer Zone Management Guideline 1999 promotes gender inclusion at the lower unit of the institution. It promotes capacity enhancement and specify right of women in the process of Buffer Zone User Committee formation by specifying participation of one male and one female member from each Buffer Zone User Group. As the hierarchy goes up from Buffer Zone User Group to Buffer Zone user committee to the Council, the percentage narrow down from 33 to 0 and there is no any specification on the position. Further, it has no provision for representation from poor and disadvantaged groups in the committee. The provision of fund allocation is not specific to women, poor and disadvantaged groups. (DNPWC, 1999). 10

15 3. Methodology of the Strategy Development The strategy development process was based on desk study and field assessment. The key methodological approaches of the assessment were inductive, consultative and meaningfully participatory. Guided questions and checklists were used to facilitate the process. The field study was done in Buffer Zones of Chitwan National Park and Langtang National Park. Out of 21 Buffer Zone User Committee (BZUC) in each PABZ system, 20% were purposively selected (Table 1). The proposed BZUCs in Chitwan were Panch Pandav BZUC of Gardi, Rewa BZUC of Kalyanpur, Ayodhyapuri BZUC of Ayodhyapuri and MirgaKunja BZUC of Bachauli, Ratnanagar. Likewise, the proposed BZUCs in Langtang were Bhorle BZUC of Bhorle, Dhaibung BZUC of Dhaibung, SuryaKunda BZUC of Syabru, Lahare Pauwa BZUC of Lahare Pauwa. The reason behind selecting these BZUCs as a study site were: i) Prevailing GESI gaps in those area, and ii) High intensity of work done by WWF Nepal in those site. In Chitwan BZ, three Buffer Zone User Groups (BZUGs) were selected from each BZUC whereas two BZUGs were selected from each BZUC in Langtang BZ. The BZUCs and BZUGs were selected purposively in consideration of balanced representation of groups with reference to demography, social groups/ethnicity, and geographical regions. Chitwan PABZ system Table 1: Sampling Design of the Study Total Sample Remarks Langtang PABZ system Chitwan PABZ system VDCs/Municipality 37/ (10%) 3 (10%) BZUCs (20%) 4 (20%) Langtang PABZ system BZUGs (0.7%) 8 (2.4%) Desk Review Appraisal: The available published and unpublished documents, GESI strategies of different organizations including WWF Gender policy, Project Log Frame and Project Specific Plan, and indicators, WWF Nepal Strategic Plan ( ), Sustainable Livelihood Strategy 2011, TAL Strategic Plan ( ), Buffer Zone Policy and Directives, CF 11

16 Development Guideline 2008, Nepal Government s Gender and Social Equity Strategy were reviewed. Available annual reports, minute books and records of BZUCs, BZUGs, CFUGs and Park Authority were reviewed at field level and analysed with GESI lenses. Stakeholder Analysis: This was carried out for mapping different key stakeholders involved in PABZ management at local level for gaining an understanding of different stakeholders and identifying with reference of social groups, geographical, roles and their respective interests in the system. Stakeholder Consultations: Interactions meeting/interviews were conducted with stakeholders at different levels including DNPWC, MFSC, Park Managers, Project staffs, Buffer Zone Council members, BZCFUGs. Interviews were also done with other local functional groups like Enterprise/Entrepreneurs, Cooperatives, Eco-club, Community antipoaching unit etc. (See Annex 1). In total twenty three persons were interviewed. Likewise, four interactions meeting with four BZUC in Chitwan and two interactions meeting was done in Langtang. Individual meetings were conducted with Council members of both Chitwan and Langtang BZMCs and BZUCs members of Dhaibung and Syabru of Langtang as it was not possible for conducting interaction meeting. Focused Group Discussion: Focused Group Discussions (FGDs) were conducted with the representatives of different interest groups (women groups, men groups, farmers groups, mixed group, Yak herder etc) in Chitwan and Langtang (See Annex 1). Altogether 6 FGDs was done with 6 BZFUGs, 20 FGDs was done with BZFUGs. Focused group discussion was done with Yak herder and Seed Bank as well. Questionnaire survey: Altogether six questionnaire surveys at individual level were also carried out with women and different social and economic groups to collect additional qualitative information in both the PABZs. For this assessment, in total 480 persons (58% female) participipated in meetings, discussions and interviews which inclde 6% from dalits, 49% from janajatis and 45% from Others 1. 1 Others include members from other than janajatis and dalits 12

17 Figure 1: Methodological Framework Interaction with the WWF, TAL, SHL experts and Staff Review of relevant policies, guidelines, strategies, reports Interview with representatives of the Ministry, Department, National park Interaction, FGD, Interview with the BZ Council, BZUCs, BZUGs, BZCFUGs stakeholders of sample NPBZ Management System Information Sources Draft Report Interview with cooperatives, Eco-clubs, CBAPOUs, Eenterprises at local level Comments and suggestions from WWF Final Report 13

18 4. Scope of the Strategy WWF Nepal has been working in four thematic areas and four cross cutting themes as in the box below. Box 4: WWF Thematic Working Areas and Cross Cutting Themes Thematic working areas Forest Conservation science and species Climate change adaptation and energy Freshwater Cross cutting themes Sustainable livelihood Policy and advocacy Conservation education and capacity building Communication and marketing As from the conservation perspective, the use, access and control of natural resources as well as other areas of goods and services are affected by the gender relations within the community and the gender and social equity is indispensable condition for the success of conservation. As most of the community s livelihoods issues are linked with biodiversity and ecosystem, the success of conservation underlies on inclusion of different social groups based on class, race, ethnicity, age, gender, and socio-economic status in decision making and benefit sharing. Therefore, the scope of this document lies on all the above working areas and themes of WWF Nepal, National conservation initiatives, and concerned conservation partners. This document will help to reflect and address the prevailing issues and gaps embedded into the conservation themes of WWF Nepal. 14

19 5. Change Areas Based on the prevailing issues, five areas of change have been identified in order to achieve Gender and Social inclusion in conservation as in the box below. Box 5: Areas of Change 1. Gender and Social inclusion responsive policy and directives 2. Gender and Social inclusion responsive institutional framework 3. Gender and Social inclusion responsive programs 4. Good Governance 5. Equitable access to and control over decision making, resources and benefits The effective and efficient working modality, appropriate strategies, interventions and action points are expected to bring measurable changes in those areas which will eventually contribute to conservation with increasing access of women, poor, Dalits, Janajatis, and other excluded groups over decision making and utilization of resources and benefits and ultimately contributing on their livelihood enhancement. 15

20 6. Major Findings 6.1 Issues and Gaps Area of Change 1: Gender and Social inclusion responsive policy and directives Inadequate GESI responsive BZ policy guidance and directives o The provision in the BZ directive includes reservation of 33% for women representation in the BZUC and BZUG but nothing has been mentioned for the BZ Council. o Directives stay silent on participation/compulsion of women in the key posts; has spelled out that if no women come in the committee, additional members can be selected to make 33% representation. o No provision of representation from Dalits, Janajatis and other excluded groups, though representation found in practice. No clear provision for budget allocation for women, poor Dalits, Janajatis and other excluded groups. The provision includes allocation of 30% of budget in conservation, 10% in conservation education, 30% in community development, 20% in IGA and skill development, and 10% in administration. Inequitable compensation for wildlife damage Wildlife damage has made women and poor more vulnerable to poverty Compensation amount for wildlife damage is very low, inequitable and are not distributed in time. Women from all caste, ethnicity and class are more involved compared to men in agricultural activities either in their own farm or in rented-in farms. Due to wildlife damage, at the end of the season they get less profit, and sometime their investment are totally lost. This has increased stress and high work load to women. 16

21 "All my crops in rented-in land have been damaged this year. The people residing close to the park are more vulnerable to wildlife damage and have conflict with park officials which has led to reduced ownership and interest in conservation. The conflict could be minimised by providing equitable compensation to the victims and allocating specific budget to women and vulnerable groups for alternative income generating activities" (F/60, Bulbula BZUG, Kalyanpur 9 Chitwan BZ). Lengthy and tedious process in claiming and receiving compensation for wildlife The compensation process for wildlife damage is long for which the victim has to visit the park authority often and have to spend more than what s/he gets. "Sometime livestock are killed by wild animal during grazing in the forests. The compensation for wildlife damage is very less and the process is too tedious. The victim (livestock owner) has to spend more amount than what he gets as the compensation. Therefore, the compensation amount has to be increased and the process has to be made easier so that women and poor do not have to suffer. He added, there is scarce of gasses in the forest which has resulted decrease in milk. Yak herders have to be supported for cultivating improved variety of grasses so that there will be enough grasses in the village and forest" Lasung Tamang -40/M Yak herder of Chyanding, Langtang BZ who come down to Syabru VDC for six months in a year). 17

22 Area of Change 2: Gender and Social inclusion responsive institutional framework Less GESI responsive institutional structures and framework The BZUCs constitution is less GESI responsive. It stays silent on representation from women, poor, dalits, janajatis and other excluded groups in key position and inadequate participation in decision making level. The constitution of Kalyanpur BZUC has a provision for representing at least one member from all the nine wards of the VDC who will be elected/selected as chair, vice-chair, secretary, treasurer and rests as members. But, it has not mentioned anything about the representation from women, poor, Dalits, Janajatis and other excluded groups in key positions. It further states that in case of no women representation in the committee, four women will be selected as additional members. This makes 30% of women representation as members. This proportion is not enough and it does not assure access of women in decision making process because the major decisive positions of the BZUC are occupied by men. The constitutions of all the BZUCs stay silent on representation of women and the excluded groups in key positions in the committees Late and untimely release of BZ fund The Buffer zone budget used to be released directly from the Park before. Since 2064/065 budget is being released through the Red Book. The released budget is less compared to what used to be released and is untimely and sometime freeze. 18

23 "Since the year 2064/065, less than 30% of the buffer zone budget has been released in a year. This has made difficult even in providing salary to office assistants, implementing development activities and monitoring of the program. This has brought decreased interest and motivation of local people in buffer zone program. Some of the BZUGs have already been inactive, especially the BZUGs of wildlife affected areas. On the other hand, some of the BZUCs and BZUGs seem active in TAL supported areas. Timely release of full budget is highly important in conservation but I don't know why the government and park authority is not taking this seriously" (BZ Council Chairperson, Chitwan BZ). Inadequate GESI sensitization to BZ Officials and BZ group members Park authorities, BZ office assistants, BZUCs, BZUGs, BZCFUGS, and BZ cooperatives were found inadequately sensitized in GESI mainstreaming. The male members of BZUCs and BZUGs perceived GESI as representing women and dalits in committee in any position. They believe that all BZ programs benefits both women and men equally. Women members perceived GESI as representing in committee, expressing voice, allocation of specific budget to women and poor. They lack understanding of mainstreaming women, poor and socially excluded groups in policy and program. The Park authority and project field level staffs are not familiar about the Nepal Government's GESI strategy. The BZUG members felt that GESI sensitization would help in addressing issues of inclusion in Buffer zone Program to some extent. There is a need of more in-depth analytical skill and interlinking conservation with the issue of gender and social inclusion. TAL field level staffs had once participated in the training and felt need of refreshment training. The Park administration puts less priority to GESI and felt need of additional human resource for cross cutting theme. "The major objective of the National Park is conservation and it puts less focus on GESI. As the park has no staff for buffer zone program, the limited human resource of the park are taking responsibilities of the BZ program as well" (Assistant Conservation officer, Chitwan NP). BZ representatives elected/selected based on political beliefs and inclinations Selecting/electing as a Buffer Zone Institution's representative is taken as a power game. The representative is selected/elected based on political belief generally dividing the seat number. This has hindered access of women, poor and other excluded groups in decision making level. 19

24 No women in BZ council The Buffer zone council comprise of 21 members representing from 21 BZUCs. The chairpersons representing these 21 BZUCs form the council. Among 21 members, one is elected/selected as a Chairperson and others as members. As the chairpersons of all the BZUCs are male, there is no female member in the council. There is no any provision mentioned in the constitution for the representation of women in the Council. No GESI sensitive program planning, budgeting, implementation, monitoring, evaluation and reporting in all tiers of BZ institutions: There is no GESI sensitive planning, monitoring and reporting system in BZ institutions. The BZUCs give priority to infrastructure development and monitoring of the activities is done based on the performance of the activities. For the household level activities (IGA, Biogas etc.) and trainings, the record of beneficiaries is maintained based on gender and caste disaggregated data but has no auditing and reporting system. "During planning process, two members from each BZUG come up in the assembly with their BZUG plan. Women's BZUG representatives generally come up with the activities related to women. The plans of all groups are then consolidated with more focus on infrastructure development activities. The constitution has provision for allocating 20% in income generation and skill development activities but,in practice, less than 10% is spent on these sector" (Women member of Gardi BZUC, Chitwan BZ). Very few female recruited in BZ program implementation structure. Only 9% women staff is recruited as office assistant. Similarly, TAL also lack female facilitator at field level. These human resources are potential agent for promoting GESI in BZ program. There are 22 Office Assistants recruited to support Chitwan Buffer Zone Programme, in which only 9% are women, 18.18% from Janajatis, and 81.82% from Others. 20

25 Area of Change 3: Gender and Social inclusion responsive programs Inadequate BZ fund available The demand of the communities is very high compared to the funds and programs available from the Buffer Zone and the Project. The BZ councils and BZUCs members of both Chitwan and Langtang felt need for the increase in Buffer zone budget to address the need of women, poor and other excluded groups. Inadequate BZ budget mobilized for women, poor and excluded groups There is no specific provision for budget allocation for women and poor in the constitution. The provision for 20% of fund allocation for IGA and skill based training is considered as a budget for women and poor and still lacks proper implementation. This has created less interest of these groups in conservation. TAL and SHL program directly and indirectly benefits women, dalits, and janajatis, however, there is need to ensure the program reach to the poor members of these groups. "In practice less than 10% of that budget is mobilised directly for the women and poor. About 70% of the BZ fund is spent on infrastructure and administration. The programs like IGA, biogas, livestock insurance, water pond, seed bank supported by TAL and SHL directly benefits the women. As the Buffer zone budget is more focused on infrastructure and administration, to increase access of women and poor on benefits, TAL and SHL has to give more focus to the program which directly benefits women and poor" (Members of Kalyanpur BZUC). Increased workload of women Women spend 8 to 16 hours in a day in household activities. Further, the trend of seasonal migration of male members to cities and abroad for employment has increased their workload. This has hindered participation of women in conservation activities. "Besides household work, different development and conservation led organizations at local level has formed their own groups and in an average women member spend 3-4 days in a month in different meetings. This has created reluctance in women participating in decision making level" (Women members of Saubari BZCFUG, Laharepauwa, Langtang). "After Buffer Zone program, the empowerment level on women has increased. Saving and credit in the group, has increased their access to finance. There are many sectoral groups in the community and the members are more or less the same in most of the groups. The members have to invest more time in meetings and voluntary work. Therefore the committee has planned to merge men and women BZUG. This will help increase in monitoring of activities as well as and coordinating with BZUGs" (Chairperson, Rewa BZUC, Chitwan). 21

26 Lack of sectoral coordination for GESI promotion among different service providers and program implementers Trainings provided as an event rather than in a package After training, participants are rarely liked up with the financial institutions, business service providers, and markets. The post-training support is very crucial for sustaining skill and livelihood. "I participated in basic sewing training organized by BZUC. After the training, I could not continue my learning as a source of livelihood because I was not confident on my skills and also could not afford to buy the sewing machine" (Shree Maya Pariyar (30/F), Bageshwori BZUG, Kalyanpur, Chitwan). "Generally trainings are provided in isolation without post training support which is not effective enough. The Institutions might fulfil their target but in reality they do not support for women and poor. It is better to train only 2 person and make them economically self dependent rather than making person semi-trained and leaving without further support" (BZ Council chairperson, Chitwan). Inadequate communication among and between BZ council, committees and groups In majority of the BZ groups, coordination was found lacking between the group and the committee. According to the BZUGs members, the committee members coordinate/communicate with the groups only during BZ committee reformation period for selecting/electing ward representatives Blanket approach for empowerment of women, poor and excluded groups 'Each member has their own interest, need and capacity. To improve livelihood of the poor, planning should be done with understanding interest, need and capacity of the targeted member/group rather than supporting same activities with same approach to all' BZ Council member, Langtang. Weak monitoring mechanism of BZ programs Generally BZ programs and activities are implemented in BZUGs through BZUCs with joint agreement. In most cases, monitoring of the programs and activities from BZUC was lacking. Programs were found effectively implemented in some groups. Example include: Community seed bank and income generating activities in Bhorle VDC of Langtang, IGA in Ayodhyapuri VDC of Chitwan. At the same time, because of inadequate monitoring from BZUC as well as less responsiveness by BZUG, some of 22

27 the programs were found less effective. Example include: Irrigation pond of Kalyanpur VDC, Fishery program in Gardi VDC (Bote community) of Chitwan, water storage pond in Bhorle VDC of Langtang. An irrigation pond was built in Kalyanpur VDC ward 2 of Chitwan BZ, in the year 2067 through BZUC. The objective was to provide irrigation support to 32 households of Bageshwori BZUG in which more than 90% members are from dalit caste. The pond has been built adjoining to the forest and it is vulnerable to flood and erosion and needs preventive measures (stone wall) to protect from the possible damage. There was no monitoring from BZUC and BZUG. Area of Change 4: Good Governance Political influences in BZ program There is political influence in the election/selection of BZUCs members. When asked about the barriers for inclusion, the committee members in all BZUC self realise it as one of the hindering factor for inclusion. "We all know political influence has to be stopped because it is one of the barriers for conservation and development, but at the time of election we forget about it. We feel like an election of parliament "Chairperson of Mirgakunga BZUC. In Mirgakunga BZUC, out of total 17 committee members, only 4 is women and all in member position. Less sensitized BZUCs, BZUGs on BZ policy, directives and their rights, roles and responsibilities The BZUGs and BZUCs of Langtang are unaware on their rights, roles and responsibilities and the BZUGs are passive as well. Like wise, the members from women, dalits', janajatis' group of Chitwan are less sensitized on their rights, roles and responsibilities. 23

28 "The youth of this VDC were provided furniture training. After training, two of them requested me for recommendation for furniture enterprise. They say that the recommendation has to be given from the BZ committee at first but I have no idea on my roles and responsibilities " BZ committee member from Bhorle Langtang. No Constitution of BZUGs of Langtang Weak governance in BZUGs and BZCFUGs There is lack of transparency, record and account keeping, accountability, misuse of fund in BZUGs, especially found in dalits', janajatis' group. Likewise, the BZCFUGs of Chitwan has weak governance. Inequitable benefit sharing mechanism in BZCFUGs The BZCFUG Constitution and Operational Plan of Chitwan is less GESI sensitive. Though the BZCFUGs have enough funds, it is less mobilized for women and poor. In contrast, the Constitutional and Operational Plans of BZCFUGs of Langtang are more GESI sensitive but lacks its implementation. Inadequate record and account keeping skill The BZUGs of women, dalits, janajatis have inadequate record and account keeping skill. Savings per member in most of the groups is between Rs. 50 to Rs The range was found to be fixed by the group without considering the capacity of poor members of the group. In BZUGs, especially of women, dalits, janajatis, the treasurer finds difficulty in calculating interest of savings, and for making easy, the group fix the same amount of saving per month for all members. The member who could not save that particular amount could not join or have to cancel their membership. Example include: conflict in BZUG of Badreni, dalits members of Ayodhyapuri BZUG, Chitwan. The access of all members to groups and saving and credit could be increased with increasing account keeping capacity of groups and facilitating BZUGs to become pro poor. 24

29 Area of Change 5: Equitable access to and control over decision making, resources and benefits Voice of women members are less heard in the group and committee during decision making. The women members in the committee often do not get informed about the incentives by their male colleagues "Though women representation in the BZUC committee is 33%, only one women is in the key positions (vice-chair) and we could not express our issues, problems and needs confidently. Mostly male members of the committee speak during meetings, we do not get chance to put our views and our voice is hardly heard. We are less informed about the opportunities and incentives. Neither the male office assistants discuss with us separately on women issues nor the field level staff of TAL. It would be easy for us if there would have been more female office/field staff in conservation based institution" (Women members of Gardi and Kalyanpur BZUC, Chitwan BZ). High household workload (8 to 16 hours) to women, unsuitable time and place for meeting hinder their representation and participation in meetings Women have less access and tenure to household and community benefits (e.g. IGA, Biogas etc) Members of BZUGs have been supported for IGA and are making income out of it. For the household level activities supported from the BZ institutions, generally the contract/agreement is done with the male members of the household though women are equally responsible for its management. Tenure does matter in the household level decision making and making contract with the women members would help increase in decision making in a particular activities. 25

30 The Community Seed Bank of Bhorle was established in the year 2065 with the objective of conserving agricultural seeds vulnerable to extinction, supplying seeds (both local and improved) to communities. It has 218 share members with 8% from dalits, 26% from janajatis and remaining others. The Seed bank collects local seeds (paddy, vegetables etc.) as well as brings improved variety of seeds from the market and supplies both to its members as well as non members. It has increased access of women to the services. Women from the village have started cultivating vegetables and have started making income from it. Before they had to depend upon male members of their household for brining seeds from the market. The members of the Seed bank was provided training once but still lack technical skill like seed selection, collection, storage, etc. Some poor members have limited access to community financial institutions like Saving and credit, Cooperatives which hinders their access to the common benefits from those institutions. Example include: Local cooperative is one of the project partner of TAL and BZ. Neither the poor people have access to cooperative nor has the cooperative reached to the poorest of the poor. Until and unless the poor is member of group/cooperative or the support mechanism is made accessible regardless of membership, there is less chance for the poor to have access on common benefits from those institutions. Elite dominance in resource distribution and benefit sharing For household level activities supported through BZUC, the key members of BZUG make decision whom to support and the BZUG is responsible for overall management of the program. As there is inadequate monitoring from Park, BZUC, TAL and SHL at grass root level, some of the household level support program (e.g. Tunnel, Biogas, Water storage pond etc.) has reached to the non-poor members (households other than the poor households identified by BZCFUG and during the field visit seems better off). 26