Conservation mosaics: An effective strategy to consolidate great expanses of protected territory in Brazil

The National System of Protected Areas Act, enacted in July of 2000, established the Conservation Mosaic Approach. Mosaics are a “set of Conservation Units (UC) of equal or different category that are close, adjoining or overlapping, and other public or private protected areas” that are managed in an integrated manner, according to the goals of each UC.

To address the challenge of managing socio-environmental conflicts and optimizing human, financial, and material resources, the Bajo Río Negro Conservation Mosaic was established in 2010, with a total area of 7,329,220 hectares, and integrated by 11 UC, among them the Jaú National Park and the Unini RESEX. The implementation of this approach prioritizes conservation processes for larger areas, which allows for landscape integrated management of areas along the Jaú and Unini rivers to the north, and the Bajo Río Negro to the south of the mosaic. By viewing the protected areas like parts of a larger unit, functional and interconnected, it was necessary to include a participatory methodology in the design of management plans, that encouraged the participation of multiple actors in the decision-making process related to the administration of the territory and its natural resources.

  • The Conservation Mosaic management approach enables the integration of multiple actors and opportunities of technical and financial assistance for territorial management.
  • Linkage of efforts in areas with a shared territorial identity, to achieve a common goal of conservation and sustainable management of natural resources.
  • Institutionalization of an Advisory Council as a mobilizing force in the area.
  • Strategy planning at a landscape scale.

The key elements for the integrated landsape management included the implementation of an Action Plan for the mosaic, the creation of an Advisory Council to support decision-making, the development of participatory methodologies for zoning community use and subsistance areas, and the strengthening of local capacities through training processes for natural resources management, sustainable agriculture, tourism, and rights and obligations of the local communities.

The benefits of integrated management are: resource optimization; integrated landscape planning; coordinating protection activities; environmental education, monitoring and awareness in the region; the possibility of developing an integrated territorial identity based on the characteristics of the region; the development of unified strategies for the valorization of products for communities around and inside the conservation units; and the facilitation of agreements and conflict resolution.

ARPA: the most important conservation program for tropical rainforests in Brazil, and mechanisms of financial sustainability of the Jaú National Park

The Jaú National Park represents one of the largest extensions of protected tropical rainforests in the world, protecting a great extent of the Aguas Negras river basin. Due to its prominence, this protected area was prioritized by the Amazon Region Protected Areas Program (ARPA),  a program created in 2002 by the Brazilian Government and managed by the Brazilian Biodiversity Fund (Funbio).

The ARPA program has the financial backing from the Global Environment Facility (GEF), the German Government, the World Wildlife Fund (WWF), the Amazon Fund, through the National Bank for Economic and Social Development (BNDES), the Moore Foundation, and currently, private companies that act as donors to the program. The program is designed to last 13 years, and it’s aimed at expanding and strengthening the Brazilian National System of Protected Areas in the Amazon, through the protection of 60 million hectares of conservation units in the Amazonian biome, and ensuring financial resources for the management of those areas in the short and long run. It is implemented in three independent and continuous phases: Phase I between 2003 and 2010, Phase II between 2010 and 2015, and Phase III with a deadline of 25 years.

  • National context of greater concern for the preservation of the Amazon region and sustainable development, with the global acknowledgment of the importance of tropical rainforests.
  • Elaboration of regional public policies for the conservation and sustainable use of tropical rainforests.
  • ARPA Program Budget for 2003-2015, of 236 million dollars.

The inclusion of the Jaú National Park in the ARPA program was an essential strategy for its conservation, given that ARPA is one of the largest programs in the world for the conservation of tropical rainforests, implementing a model that ensures the quick and effective gathering and application of financial resources.

During Phase I, ARPA was dedicated to the creation of new protected areas. During Phase II, it was focused on consolidating the program. Phase III is aimed at consolidating 60 million hectares of protected areas in the Amazon at a Federal and National level, and reaching financial sustainability.

The support provided by ARPA made possible the creation of the Unini River RESEX, consolidating the RESEX and the Jaú National Park through the funding of projects that enabled the generation of conservation value and increasing the financial income of local communities. This contributes to the sustainability of both conservation units at a social, financial, and management level.

Governance and participation of local actors in the management and use of natural resources

Through the process of the Unini River Extractive Reserve (RESEX) creation, and under the framework of the contract for the co-management of the Jaú National Park, the FVA implemented innovative and participative mapping methodologies for the use of natural resources, and has been investing in a process of organizational and local capacity strengthening for sustainable use of natural resources. Among them is the development and implementation of a methodology for the use of natural resources  (SIMUR) in the Unini River. This served as input for a process in 2008, after the creation of the RESEX, with the development and implementation of “Terms of Commitment” with the local communities of the Unini River. These documents represent a series of agreements among the six communities living along the Unini River in the Jaú National Park and the Government of Brazil. The goal of these agreements was to regulate their permanence in the Park and to establish a co-management process with the local population and the Park administration. As a result, community participation in the decision-making processes in both conservation units (Jaú National Park and Unini River RESEX) was and is fundamental to the efficient management of both areas.

  • Development of tools focused on socio-environmental conflict management.
  • Promotion of social participation in the management of conservation units.
  • Zoning of the protected area use and exploitation established with three distinct categories and implemented in territory thanks to a robust participatory process.
  • Creation of the Unini River Mixed Agricultural Extractive Cooperative (COOMARU) for the use of natural resources.

Different planning processes for the management of both conservation units have allowed moving forward in the organizational and local capacity building strengthening for the development of economic activities. For example,  the COOMARU was created, dedicated to the fair trade of Brazilian walnuts and the development of basic infrastructure to storage and benefit agricultural extractive producers. Besides that, local residents are the main source of information on use of natural resources. Therefore, the programs and projects that promote community participation in data gathering, systematization, storage, and analysis, have the potential to transform the management process of conservation units, as they organize and classify the information about production and subsistence activities within and around these areas. In this way, the dynamics of training community monitors and residents contribute to form up community leaders in charged of the protected area management.

Local participation to guarantee access to natural resources and land possession

In 1979, the area presently occupied by the Jaú National Park was proposed as a Biological Reserve, a management category that is restrictive toward exploitation of natural resources in Brazil. In 1980, the Jaú National Park was created, and since then it has the challenge of managing the high level of socio-environmental conflict in the area.

The Vitória Amazônica Foundation (FVA), with presence in the area since 1991, has applied innovative and participatory mapping methodologies for natural resources use, which were the basis for the development of its zoning and Management Plan, between 1996 and 1998, within a co-management contract with the Federal Government of Brazil. Years later, Brazil created the National System of Conservation Units (SNUC) and developed tools for building participatory processes. As a result, the FVA, as the technical collaborating institution of the Brazilian Institute of the Environment and Renewable Natural Resources (IBAMA) provided support to local communities during the creation of the Unini River Extractive Reserve (RESEX), in a process that lasted until 2006, with the intention of guaranteeing access to natural resources and land tenure for the populations in the Jaú and Unini rivers.

  • Creation of the National System of Conservation Units (SNUC).
  • Promotion of social participation in the management of conservation units (UC).
  • Development of tools for socio-environmental conflicts management.
  • Technical and financial support for training procceses between protected area managers and local representatives.
  • Creation of the Residents’ Association of the Unini River (AMORU) for the creation of the Unini River RESEX.

The creation of the Unini River RESEX required a participatory process that allowed negotiating and defining with the local communities a set of favorable conditions to enable the design and application of consultation mechanisms, natural resources use zoning, and the creation of participatory organisms such as the RESEX Deliberative Council, in 2008.

The first step was the creation of the AMORU, which in turn made the formal request for the creation of the RESEX. After that, a public consultation process was developed in the local communities, to underwrite the creation of the Reserve. Once the reserve was created, the Chico Méndez Institute for Biodiversity Conservation (ICMBio), an institution connected with the Ministry of the Environment, together with the FVA, began the management processes. Among this was the formation of the Deliberative Council, integrated by representatives of government agencies, civil society organizations, and local population representative of the area.

Implementation of a pioneering project and its effectiveness as a strategy for financial sustainability

The Noel Kempff Mercado Climate Action Project (PAC-NKM) was designed in 1996, with the participation of the National Government of Bolivia, the Friends of Nature Foundation (FAN), the Nature Conservancy (TNC,) and three foreign corporations from the energy sector. Its goal was to avoid or mitigate the emission of up to 5.8 million tons of CO2 over 30 years (1997-2026) on a surface of 600,000 hectares. This project was positioned as the first forest-based carbon sequestration project in the world and is sought to be replicated in other countries, as it allowed to certify nearly a million tons of CO2 during its first nine years of implementation (1997-2005). As this is an action implemented in accordance with the United Nations Framework Convention on Climate Change (UNFCCC), a trust fund of 2.5 million dollars was established to contribute to the Park’s sustainability in the Protection, Community Development, Monitoring and Verification of Carbon Sequestration, and long-term Financing Programs. Despite being designed to work until the year 2026, the execution of the PAC-NKM was halted in 2013 with the intention of adapting it to the new political framework of Bolivia, in connection to the Mother Earth Joint Mechanism.

  • National and international policies for the design and implementation of PAC-NKM.
  • Government commitment and continuity of the technical and scientific team of PAC-NKM.
  • Participation of the governmental sector, civil society, and business sector in the verifiable measurement of changes in carbon volume.
  • Synergy between the Park co-management and PAC-NKM administration.
  • Scientific support of collaborating partners in baseline set up, implementation, and monitoring of the project.

PAC-NKM allowed the reversal of logging concessions, through a financial compensation process and deforestation prevention actions. The innovative methodologies for carbon sequestration monitoring and assessment of the deforestation reduction effectiveness allowed to scientifically demonstrate the feasibility of carbon emissions quantification. This made PAC-NKM into a world referent in carbon credits quantification and positioned the Park as the first to be certified by the General Surveillance Society (SGS) under the standard of the Clean Development Mechanism, despite being a non-eligible activity.

The project also promoted the Community Development Program, which supported processes for participatory planning, health, education, micro-businesses, sustainable management of natural resources, and forestall management. This helped achieve the legal consolidation of the indigenous territory of the Guarasug´we Chiquitano of Bajo Paraguá.

Effective governance through community participation

The Bolivian legal framework establishes the legitimate right of groups of local actors to decide on protected areas management and their natural resources. Since 1996, the Noel Kempff Mercado National Park developed a governance model through the creation of a Management Committee that was built gradually and that nowadays helps in planning, decision-making and the achievement of management goals for the area. The actors of the Committee are members of national, departmental, and local government as well as members of the non-government sector, with the participation of the Friends of Nature Foundation (FAN) during the co-management period of the Park (1995-2005). It also includes representatives of the seven indigenous communities and the Bolivian Indigenous Union of Bajo Paraguá. Besides this, since 2013 two additional governmental institutions participate with only the right to vote. Both of them are important in border protection and in supporting the protected area and its neighboring communities development. Since the creation of Management Committee, it has worked as a strong governing body for the protected area, without interruption in its meetings.

  • National Legal Framework: Law of Popular Participation.
  • Strategic vision of implementing a multi-dimensional management model based on the inclusion of actors in the decision-making processes.
  • Institutionalization of the Management Committee in the Management Plan,
  • as the instance of representativeness of the local population.
  • Training processes for the members of the Management Committee.
  • Preliminay consultation processes with the local communities institutionalized

Thanks to the meetings of the Management Committee, the communities, the local authorities, and the Park Administration participate in the decisions about  the protected area planning and management. This established and strengthened the bond between the Park Administration, community members, and other actors connected to its management. For several years, the transportation of participants to the meetings was incentivized and subsidized by protected area projects. Currently, ordinary meetings are conducted every four months, with extraordinary meetings when necessary, but transport for the members is dependent on Park subsidies. The inclusion of the local population in the decision-making process allowed to incorporate different views about the management of the area, which strengthens its management and administration, and brings greater legitimacy to the decisions and strategies.

A co-administration model for effectiveness management and conservation of the protected area

The co-administration model of the Noel Kempff Mercado National Park (PNNKM) between the National Government of Bolivia and the Friends of Nature Foundation (FAN), from 1995 to 2005, set a foundation for institutional strengthening for the Park’s management. This model enabled the consolidation of the area and structured a planning process through the application of institutionalized management tools such as the Protection Plan (2013-2017) and the Annual Operational Plan, which had rarely been used in the National System of Protected Areas (SNAP). Likewise, the FAN contributed in procuring funding to ensure management sustainability, mainly through the Noel Kempff Mercado Climate Action Project (PAC-NKM). Adding to this, the promotion of participatory mechanisms, such as the Park Management Committee and the involvement of members of local communities in operational instances and decision-making, have been fundamental in improving the Park’s management.

Sadly, this co-administration model was phased out in 2006 due to changes in the national socio-political context witch centralized management of protected areas within the National Government. The main impact of this change is seen in the Park’s financial sustainability.

  • Decision and political leadership of the Government of Bolivia to extend the PNNKM through Supreme Decree.
  • The signing of a co-management agreement between the FAN and the Ministry of Sustainable Development and Environment (1995).
  • Creation of the Management Committee of the PNNKM.
  • The inclusion of local communities in the planning, management, and natural resources protection processes in the Park.
  • Development of economic activities compatible with the principle of human-nature coexistence.
  • The strategic vision for establishing a mixed management model integrating a regulating and oversight role for the National Government with the management capacity of the FAN was a key driver for revitalizing the Park’s management.
  • Since 1997, the presence of logging concessions was reverted, and the protected area was extended from de 642,458 hectares to 1,523,446 hectares. This was
  • achieved under the framework of the PAC-NKM, with a process of economic compensation, together with the develpment of a Protection Program and a Community Development Program to promote governance and social participation.
  • The promotion of participatory mechanisms such as the Management Committee and the involvement of members of local communities made the Park to become the protected area with the second largest number of park rangers in the country, with a high percentage of representatives of local communities. This helped improve relations and support by local communities in the preservation of the area.
Developing a management model based on traditional knowledge

Palau has a long history of managing its fisheries. For generation upon generation, the Traditional Chiefs placed vulnerable reef areas off limits to fishing, known as a “bul,” to protect both biodiversity and the livelihoods and food security of their people. In these modern times, it is broadly accepted that “marine capture fisheries have direct impacts not only on the target market species, most significantly tuna, but also can have large impacts on a number of incidentally caught species, some of which are particularly vulnerable to overexploitation and can directly degrade habitat and can have broad indirect or collateral effects on community structure and processes. 

Using this traditional method of conservation, Palau has created a "whole-domain" management approach from ridge to reef and beyond, the most ambitous component being the Palau National Marine Sanctuary. As Palau moves forward with the implementation of the PNMS, the Bul concept is kept in the forefront of all processes. 

- Overwhelming commuinity support due to traditional knowledge and practice of the Bul

- Recognition of the relevance of traditonal practices by the National Government

- Global support for the use of traditional pracitices to guide formalization of conservation 

- Initiating community support early on in the process was crucial in the process of passing the legislation and implementing the MPA

- Seeking lasting partnerships with organizations and governments that recognize the values of the importance of tradition, community led conservation and environmental protection.

Transfer of knowledge to local governments and uptake of measures

Cooperation projects such as EbA Amazonia are development agents that come and go. In contrast, state institutions, whether national, regional or local, are permanent with the main objective to ensure the welfare of communities in a specific area. Local governments operate close to the rural population.

Capacity transfer is another important issue from the point of view of the project.

To make the development approach of the municipalities compatible with the conservation approach of a protected area is fundamental in order to gain allies for the conservation of an area and the development of the surrounding population. This relates to building block 4 - the generation of conservation agreements between a community and their strategic allies form a solid base to channel support from the local governments in the development and implementation of adaptation measures. At the same time, information and training on how to access the state's public investment system for the local governments broadens their capacity to serve the local population and to access different funding sources.

  • Information on and access to public investment and rural support programs.
  • Having capacities for political dialogue.
  • Involve the local governments from the start.
  • Map and locate the adaptation measures according to each type of public rural and financial support program.
Support information on how to adapt an activity according to ecological, social and climatic conditions (Brazil nut case)

The native communities of Boca Isiriwe, Masenawa and Puerto Azul decided to start using chestnut trees (Bertholletia excelsa) that existed within their territories despite having no prior experience in doing so commercially. The first requirement or condition that the EBA Amazonía project established was to exclude the possibility of contamination of the fruits with heavy metals. Samples of soil and fruits of the chestnut were taken. No significant residues could be found, in spite of the proximity of mining operations.

The project supported them as this activity suited well with the ecosystem approach assumed by the project.

A complete database of the occurrence and distribution of the species was created in order to model the changes that the species would suffer based on current and future climatic information. According to the modelling, chestnut will remain a species with a wide distribution throughout the area of the Amarakaeri Communal Reserve, with slight changes in its distribution. This way, the project responded to the local interest by providing the necessary information to guarantee a sustainable production process.

  • The EbA Amazonía project planned ahead for the provision of scientific information. The necessary resources and capacities to carry out the studies were available.
  • Good knowledge of the forest resources: although the communities did not use the chestnut before, they knew that it existed and where it grows.
  • Human vulnerability (to climate change or other factors of change) is neither static, nor one-dimensional, nor uni-directional. It is multifaceted and can change rapidly with decision-making.
  • On the other hand, analysing the vulnerability of a plant species (the chestnut in this case) is less complex and more reliable (less uncertainty) because it is only necessary to analyse biophysical variables and the variables of exposure to climate change or other factors of change.
  • Using the results of the analysis is very helpful for the local population to determine their areas of interest for the protection of the chestnut which in turn can be destined for other uses of low ecological impact.