Adaptive Management for Conservation and Sustainable Development in Nakai-Nam Theun National Park
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Basemap and population centres of NNT NP
Nakai-Nam Theun National Park
The Nakai-Nam Theun National Park (NNT NP) in the Lao People's Democratic Republic (Lao PDR) is a remarkable natural area, forming a vital part of the biodiverse Annamite Mountains ecoregion and encompassing approximately 4,700 square kilometers. Originally established as a National Biodiversity Conservation Area in 1993, it was formally transformed into a National Park in 2019 under Prime Minister's Decree 36/PM. This transformation and its ongoing management are intrinsically linked to the Nam Theun 2 (NT2) Hydropower Project, which has provided annual funding to the park since its commercial operations began in 2010, serving as a critical offset for the project's environmental impacts.
Last update: 28 Nov 2025
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Context
Challenges addressed
NNT NP has faced significant challenges typical of biodiverse regions undergoing development:
- Biodiversity Decline: Southeast Asia has experienced widespread biodiversity declines due to population growth, economic development, unsustainable resource use, and habitat loss. Within NNT NP, threats include unsustainable use of natural resources, illegal hunting (which has led to local extinctions of some species like the Tiger), illegal trade in wildlife and timber, and land conversion for agriculture.
- Balancing Conservation and Livelihoods: A constant challenge is to support the livelihoods and customary resource use rights of the multi-ethnic communities while ensuring the long-term conservation of the park's natural assets.
- Evolving Governance: Ensuring a stable, effective, and transparent governance structure capable of coordinating diverse stakeholders (local communities, district/provincial/central government, international partners) and managing significant financial resources.
Location
Laos
Southeast Asia
Process
Summary of the process
The governance of NNT NP has undergone a significant evolution, establishing a structure aligned with international conservation standards and align governance with Green List and World Heritage requirements. The NNT NP's governance is structured through a hierarchy of legal instruments, starting with the Nam Theun 2 Concession Agreement (CA). This is reinforced by progressive refinement of Prime Ministerial Decrees. The evolution of these decrees has facilitated the transition from a National Protected Area to a National Park.
The core of NNT NP's adaptive management lies in its iterative planning process, centred around the Social and Environmental Management Framework and Operational Plans.
A key pillar of NNT NP's success is its systematic approach to protecting its natural assets through a robust biodiversity monitoring and law enforcement.
Integrated Livelihood Development for Conservation recognizes that sustainable conservation is intertwined with the well-being of local communities. Livelihood development is guided by the Participatory Integrated Conservation and Development (PICAD) model, fostering "community ownership" of conservation and livelihood activities.
Building Blocks
1. Evolving Legal and Governance Framework The governance of NNT NP has undergone a significant evolution, establishing a structure aligned with international conservation standards.
- Legal Basis: The NNT NP's governance is structured through a hierarchy of legal instruments, starting with the Concession Agreement (CA), which established fundamental commitments for environmental and social management. This is reinforced by Prime Ministerial Decrees, including PM122 which have refined the legal status, roles, duties, and organizational structure of the NP. The evolution of these decrees facilitated the transition from a NPA to a National Park, and proposed changes to PM122, aim to align governance with Green List and World Heritage requirements.
- Governing Body: The Nakai-Nam Theun National Park Authority is the responsible entity. It is governed by a Managing Committee, chaired by the Minister of Agriculture and Environment and including representatives from central and local government agencies, and NTPC.
- Operational Management: Day-to-day operations are carried out by the NNT NP Management Division.
- CA: The entire framework operates under the CA of the Nam Theun 2 Power Project. This agreement provides consistent annual funding for the NP.
- Decentralization and Collaboration: The structure facilitates decentralization of management to local authorities and emphasizes collaboration with Implementing Partners. This multi-level engagement ensures coherence and effective implementation.
Enabling factors
Considerable work went into the development of both the Nam Theun 2 Concession Agreement, providing guaranteed funding, and the first version of the Social and Environmental Management Framework and Operational Plan. These framework documents and the support from the World Bank, Asian Development Bank and the International Panel of Social and Environmental Experts set the NNT NP up with an adaptive management process to drive continual improvement.
The annual monitoring by the Independent Monitoring Agency provides continuing guidance for improvement.
2. Comprehensive Planning and Adaptive Management using the Social and Environmental Management Framework and Operational Plan (SEMFOP) The core of NNT NP's adaptive management lies in its iterative planning process, centred around the SEMFOP.
- Strategic Planning: A comprehensive 5-year strategic plan (now at SEMFOP 4, 2022-2026). The plan is developed with participatory consultations with the Committee, management, staff, inhabitants, and Implementing Agency staff. The SEMFOP is the strategic framework for NP management, defining its vision, goals, objectives, and strategies for conservation and development. The vision is to protect biodiversity, enhance ecosystems, protect rivers and soils, and improve inhabitants' livelihoods.
- Iterative Development: A SEMFOP is developed every 5 years through extensive consultations with stakeholders to ensure plans are contextually relevant to needs and widely supported.
- Adaptability: A feature is the mechanism for adjusting the SEMFOP or annual Operational Plans in response to unforeseen circumstances or new priorities. Such proposed changes are reviewed by the Independent Monitoring Agency (IMA) and subsequently approved by the Managing Committee. This ensures flexibility and responsiveness to changing ecological and social conditions.
- Integration of Objectives: The SEMFOP integrates various objectives, from protecting riparian forests and water quality for the NT2 Reservoir to preserving biodiversity, fostering research, strengthening management capacity, improving multi-ethnic livelihoods, and prudently managing finances.
Enabling factors
The NT2 CA which defines the process and provides the annual funding of USD1,000,000 (CPI adjusted from 2010) supports the planning process and contributions from district agencies from 4 districts across 2 provinces.
Involvement of the Managing Committee, NTPC, World Bank, NNT NP management and staff, NP inhabitants and implementing partners in the review and feedback on SEMFOP drafts
Inputs from IMA providing guidance on areas for improvement.
The considerable research undertaken for the development of SEMFOP 1 and subsequently to enhance knowledge of NP values.
3. Robust Biodiversity Monitoring and Law Enforcement A key pillar of NNT NP's success is its systematic approach to protecting its natural assets.
- Law Enforcement Program: NNT NP has a proactive law enforcement program focused on protecting wildlife and biological resources, with emphasis on endangered Annamite endemic species. This includes forest patrols (35,000 man-days pa) and operating checkpoints at strategic locations.
- Targeted Protection: Efforts are concentrated on 3 Biodiversity Priority Zones, based on global conservation importance and threat analysis. The zones are crucial for species like the Critically Endangered Large-antlered Muntjac, offering significant hope for long-term survival.
- Combating Illegal Activities: Strategies to reduce illegal poaching and trade through improved cooperation with neighbouring countries and intensive patrols along the Lao-Vietnam border. Adaptive law enforcement strategies are informed by "Patrolling Hit Rate" data.
- Long-term Wildlife Monitoring: The park has a wildlife monitoring program using 300 camera-traps deployed biennially to estimate trends in populations and distribution. This provides essential data for evaluating conservation effectiveness.
- Research Partnerships: NNT NP actively partners with specialized research organizations to expand knowledge of the park's biota and build staff capacity. Ongoing research includes programs for the Asian Elephant and Chinese swamp cypress.
Enabling factors
Support from organizations such as Association Anoulak, Leibniz Institute for Zoo and Wildlife Research, Royal Botanic Gardens Edinburgh
Early capacity building by the Wildlife Conservation Society on law enforcement, wildlife monitoring and populational analysis of Asian elephant
Support from NTPC with their Wildlife Program from 2006 to 2012
An extensive list of biologists, wildlife ecologists, botanists and anthropologists that have developed a wealth of knowledge of the NNT NP ecology
4. Integrated Livelihood Development for Conservation NNT NP recognizes that sustainable conservation is intertwined with the well-being of local communities.
- Participatory Approach (PICAD Model): Livelihood development is guided by the Participatory Integrated Conservation and Development (PICAD), fostering "community ownership" of activities by involving villagers in problem-solving and encouraging their contributions (labour, materials). The management incorporates the Government's "Sam Sang" policy, which promotes the village as the basic unit of development and the district as the development manager. Empowering communities in resource management. Village Development Plans (VDPs) are crucial, guiding the allocation of support from funds like the WB LENS2 and LLL programs
- Eco-tourism Development: NNT NP facilitates community-based eco-tourism to provide socio-economic benefits to villagers with minimal environmental impact.
- Community Outreach and Awareness (COCA): Programs are delivered to communities within the park to raise awareness about conservation issues and integrate conservation messages into local culture.
- Land Use Planning: Capacity building for district staff in Participatory Land Use Planning (PLUP) and GIS mapping supports the land use plans, ensuring that land use in and around the park is both productive for communities and consistent with conservation goals.
Impacts
- Enhanced Conservation Outcomes: NNT NP has maintained approximately 86% of its forest cover and is a vital stronghold for globally threatened and endemic species, with its faunal community being significantly less defaunated than other Annamite forests. The commitment to reducing biodiversity threats by 40% by 2026 with substantial patrol efforts demonstrates a strong protective stance. Improved Livelihoods: The livelihoods of villagers have improved, leading to the removal of Nakai District from the national poverty list. This reflects successful poverty reduction through environmentally sustainable development. Progress Towards International Recognition: The park is actively pursuing IUCN Green List status, which evaluates governance, design, management, and conservation outcomes. Replicability and/or Scalability The adaptive management framework of NNT NP offers several "building blocks" that are highly replicable and scalable. A critical element is the budget assurance mechanism stipulated by the NT2 Concession Agreement. This includes mandatory annual review by the Independent Monitoring Agency and annual audits by an Independent Auditor. The Independent Monitoring Agency monitors and evaluates the implementation of annual operational plans and confirms consistency with goals and objectives
Beneficiaries
The adaptive management framework of NNT NP benefits multiple stakeholders including multi-ethnic people residing in the park's enclave benefit from improved livelihoods, poverty reduction, and the protection, rare, endangered, and endemic species.
Global Biodiversity Framework (GBF)
GBF Target 1 – Plan and Manage all Areas To Reduce Biodiversity Loss
GBF Target 2 – Restore 30% of all Degraded Ecosystems
GBF Target 4 – Halt Species Extinction, Protect Genetic Diversity, and Manage Human-Wildlife Conflicts
GBF Target 5 – Ensure Sustainable, Safe and Legal Harvesting and Trade of Wild Species
GBF Target 14 – Integrate Biodiversity in Decision-Making at Every Level
GBF Target 20 – Strengthen Capacity-Building, Technology Transfer, and Scientific and Technical Cooperation for Biodiversity
Sustainable Development Goals
SDG 2 – Zero hunger
SDG 3 – Good health and well-being
SDG 5 – Gender equality
SDG 6 – Clean water and sanitation
Story
Imagine a villager from an enclave community, like those in the Navang area. For generations, their families relied directly on the forest for food and resources. When the Nam Theun 2 Project introduced restrictions, there was initial uncertainty and unease. However, through the participatory Village Development Plans, they gained a voice in how their community would adapt. They worked with the NNT NP Management Division to identify new opportunities – perhaps improved irrigation for rice fields or training for eco-tourism ventures in areas like Nam Xot-Nahao. Simultaneously, they became partners in the conservation effort through Community Conservation Agreements, understanding that protecting the unique wildlife, like the Large-antlered Muntjac they once hunted, was essential for the long-term health of their environment and new livelihoods. The stable funding from the hydropower project meant these initiatives weren't fleeting but supported over years, providing a sense of security and a tangible link between the dam's operations and their daily lives. This shift, from reliance to shared responsibility, truly transformed their relationship with the park and its future.
