Transboundary Diagnostic
Analysis (TDA) of the Botswana
Portion of the Okavango River Basin:
Stakeholder Involvement in the
ODMP and Its Relevance to the
TDA Process
Lapologang Magole
Harry Oppenheimer Okavango Research Centre
July 2009
TDA Botswana Stakeholder Involvement in the ODMP
Transboundary diagnostic analysis (TDA) of the Botswana
portion of the Okavango river basin
Stakeholder involvement in the ODMP and its relevance to the TDA process
Consultant:
Dr. Lapologang Magole
Harry Oppenheimer Okavango Research Centre
University of Botswana
Final draft report
July 2009
2
TDA Botswana Stakeholder Involvement in the ODMP
Table of Contents
1. Introduction and background ....................................................................................... 4
2. The strategy and philosophy for the ODMP stakeholder participation ....................... 5
3. Participation activities and opportunities during the ODMP....................................... 7
3.2 Additional consultation specifically for the TDA process ........................................ 9
4. Conclusion: Evaluation of the ODMP and TDA Stakeholder participation ............ 10
5. References:
................................................................................................................ 11
Table of Figures
Figure 1: ODMP project planning and management structure. ......................................... 7
3
TDA Botswana Stakeholder Involvement in the ODMP
Stakeholder participation strategy for the Okavango Delta Management
Plan (ODMP) and OD TDA process
1. Introduction and background
The transboudary diagnostic assessment (TDA) for the Delta part of the Okavango River
Basin (ORB) was based on the extensive research and planning outputs of the ODMP
process which was completed in 2006. For this reason the TDA process adopted all the
ODMP stakeholder participation processes including decisions made regarding
methodology, context and spatial extent of the planning area. This paper describes the
ODMP stakeholder process as a proxy for the TDA consultation process. It is important
to note that during the TDA process consultation was extended with two stakeholder
workshops and briefing meetings for the Okavango Wetland management Committee
(OWMC) dedicated specifically towards creating awareness and seeking stakeholder
participation in the TDA process.
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TDA Botswana Stakeholder Involvement in the ODMP
2.
The strategy and philosophy for the ODMP stakeholder
participation
The framework for the ODMP planning process was based on the provisions of the
following guiding principles:
Issue driven or "hot spot" approach
Ramsar Planning guidelines (IWRM)
Ecosystem Approach
National frameworks and approaches
SADC Revised Protocol on Shared Watercourses
A common factor in these principles is that they all stress the notion of stakeholder
consultation, participation and communication. Hence at the core of the ODMP process
was the notion of stakeholder consultation and partnership in the planning process.
Effort was made to move away from the traditional superficial participation of
stakeholders to achieve milestones and satisfy donor requirements, but to create a
partnership around the management and wise use of the Delta resources. Participation
was undertaken first and foremost to collect, rank and agree upon the issues that
needed to be addressed by the plan. The overall guiding principle for stakeholder
involvement was:
`the creation and strengthening of ownership.' ODMP Project Proposal (2002).
In order to operationilize the principle it was broken down into several elements:
· Aim
for
high level of participation. In classical ranking of participation the
lowest level is information dissermination and the highest being devolution.
· Participation
of
all stakeholders
· Continuous consultation and communication to ensure stakeholder
association to the decision making process.
· Creating and strengthening responsibility and accountability in the existing
institutions with a mandate to manage the delta and its resource.
· Co-learning; in particular identify and use traditional knowledge.
· Free flow of information (accessibility and transparency)
· Promote
stakeholder
interest and support in subsequently engaging in plan
implementation.
These elements formed the core and thrust of the participatory planning component of
the ODMP planning process. Every phase of the planning process was punctuated with
a consultation activity. The consultation strategy evolved as the planning process
continued. Every consultation effort was reflected upon and evaluated for effectiveness
and ability to foster meaningful stakeholder participation. Where necessary a different
strategy was employed to improve participation.
The high profile of participation in the ODMP was deliberately built into the project by
assigning two planning components dedicated to communication and stakeholder
participation. Dialogue, communication & networking was the responsibility of the
5
TDA Botswana Stakeholder Involvement in the ODMP
department of Environmental Affairs (DEA). This component was financed by donor
funding from IUCN. The other component, Participatory planning was handled by
University of Botswana's Harry Oppenheimer Okavango Research Centre (HOORC) and
was financed by the German Development Fund (DED). DEA was tasked with
developing a communication strategy for the Okavango Delta as well as the entire basin,
while HOORC had the responsibility to mobilize stakeholder participation and facilitate
dialogue and planning meetings.
Furthermore a stakeholder analysis was performed on the Delta stakeholders as per the
ecosystem approach. The Delta riparian communities were designated primary
stakeholders; while the other resource users in the basin (Angola & Namibia) were
designated secondary stakeholders; all other stakeholders (Government of Botswana
resource managing institutions, Business community, tourists and international partners)
were designated as tertiary stakeholders. While all stakeholders were viewed as
important, the robustness and intensity of consultation followed this designation.
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TDA Botswana Stakeholder Involvement in the ODMP
3.
Participation activities and opportunities during the ODMP
The first opportunity for stakeholder participation was created in the structure created for
the production of the plan as shown below. The Department of Environmental Affairs
(DEA) in the Ministry of Environment Wildlife and Tourism was the coordinating agency.
This Department formed and hosted the project secretariat in Maun. The secretariat was
responsible for the day to day running of project activities and coordination of different
sectors and planning components. The secretariat was accountable to two bodies of
stakeholders; the Project Steering Committee of directors and permanent secretaries of
involved Ministries and the Okavango Wetland Management Committee (OWMC). The
OWMC is an assembly of local Ngamiland District stakeholders with representatives
from Government, Parastatals, private sector, NGOs and Tribal Administration. Project
task forces were technical committees which gave technical support to the sector based
planning components.
Figure 1: ODMP project planning and management structure.
While this structure provided for wide consultation and involvement of as many tertiary
stakeholders as it was possible, opportunities were created to insure that primary and
secondary stakeholders were informed and involved in the planning process to the
extent possible. Apart from production of information sheets and other publicity materials
public participation and involvement platforms were created as follows:
· Kgotla1 meetings were held in all villages within the RAMSAR site for
consultations and communication (feed back) with local stakeholders
(communities)
November
&
December
2003
1 The kgotla is a traditional meeting place in Botswana and also refers to meetings held at the place.
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TDA Botswana Stakeholder Involvement in the ODMP
February & March 2004
February & march 2005
September 2006
· Workshops were held in the main villages of Shakawe and Gumare for
interaction with and participation of community representatives and leaders
(Managers of Community trusts, Dikgosi2, VDC leadership, and local political
leaders for all villages in the RAMSAR site)
Shakawe,
January
2005
Gumare, August 2006
Shakawe, and Maun August 2007
· Workshops for resource managers to present plan proposals and seek input from
stakeholders
· Dialogue meetings with community focal persons (persons elected or selected by
the community to be their representatives in the ODMP planning team)
· Workshops for interaction, dialogue with and participation of the business sector
(tourism sector)
Maun
February
2005
Maun August 2006
· Presentations at the Okavango Wetlands Management Committee meetings to
brief stakeholder representatives.
· Continuous forum with the local authorities (District Commissioner, Council
Secretary, Kgosi Kgolo (paramount Chief3) as well as full council) to brief them
on progress and seek advice.
· Continuous task force (resource managers/planners and relevant professionals)
meetings for consultation, communication and technical advice.
· Milestone international workshops/conferences to brief, engage and interact with
our international partners and stakeholders; as well continuous progress briefs
for OKACOM.
Results of consultation: This process yielded first and foremost the issues which were
to be the focus of the plan. Secondly it yielded the ODMP plan components which had
an appreciable level of buy-in from stakeholders.
The following are some of the issues raised by non-community stakeholders:
· Pressure on natural resources due to increasing demands.
· Climatic and hydrological information insufficient to predict changes.
· Overall economic value of an "intact Delta" never been assessed (is unknown).
· Land degradation, e.g. overgrazing.
· Invasive species, e.g. Salvinia molesta.
· Traditional land rights are often not defined and documented and consequently
not well protected
· Upstream developments, such as:
hydro-power
generation
Repopulation in Angolan part of the catchment
Agricultural
development
2 Traditional leaders, who sit at the Kgotla and over see the Kgotla meetings.
3 The highest ranking traditional leader in the hierarchy.
8
TDA Botswana Stakeholder Involvement in the ODMP
..and by community stakeholders:
Water quality (sewage, solid waste, boats).
River management issues (channel blockage)
Waste management problems.
Land use conflicts (e.g. subsistence vs commercial, livestock vs wildlife).
Wildlife, livestock and people movement (disease control fences).
Human wildlife conflicts (ELEPHANTS, predators).
Citizen participation and benefits from tourism.
Problems with CBNRM (lack of capacity, lack of support).
Conflicts in fishing (recreational fishing vs commercial fishing).
Land allocation issues and conflicts (Land Board capacity).
ODMP component plans and reports produced included:
o Integrated Land Use Plan
Review of existing plans, CHA delineation, optimization of land
use
o Fire
Management
Plan
o Fisheries Management Plan
o Vegetation
resources
Management
Plan
o Tourism
Development
Plan
o Economic Valuation of the Delta
3.2 Additional consultation specifically for the TDA process
For the TDA process two stakeholder workshops were held in Maun. The first workshop
was held at the beginning of the TDA process to:
inform OD stakeholders about OKACOM activities- TDA & SAP
engage stakeholders in the TDA process
initiate the collection of data needed for delivering the OD TDA
continue the District participatory planning tradition
The second workshop was held towards the end of the TDA process in order to:
update OD stakeholders on the OKACOM activities - TDA & SAP
present draft TDA specialist reports and seek stakeholder's inputs
present and seek stakeholders input in the NAP
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TDA Botswana Stakeholder Involvement in the ODMP
4.
Conclusion: Evaluation of the ODMP and TDA Stakeholder
participation
The extent and impact of stakeholder participation in the ODMP is best captured by the
reaction of consulted communities. At the start of the project the ODMP team
encountered highly fatigued communities owing to a history of superficial consultation.
This was captured in a statement made by one community member in one of the initial
Kgotla meetings in 2003/2004: "You have already progressed so far with the ODMP
project without consulting the communities. We doubt that our comments will be
incorporated now." "We are tired of all the meetings, as solutions are never
implemented."
However as time went on and the OMP project team constantly returned to have
dialogue with communities the frustration with consultation turned to some assertion and
requirements for better capacity building for effective consultation: This was expressed
by a participant of the ODMP consultative workshop in Shakawe, January, 2005. "We
need educational workshops to improve our participation and understanding and benefit
from the project. We need education so that after three years of planning we become
part of the management process."
As the ODMP planning phase drew to an end communities and the team developed a
rare sense of rapport as captured in this statement made at the ODMP feed back
workshop in Shakawe, August 2007: "This is an opportunity to have our concerns and
suggestions included in the plan. We are thankful that Government has changed its
approach and is acknowledging our expertise and gives us a chance to have an input
before decisions are made."
The ODMP can be said to have emerged with a stakeholder participation profile second
to none in the country. This is the strategy that the TDA process built on to foster its own
participation and legitimacy. However much still remains to be done by way of
strategizing for and executing implementation of the plan. For example, although it
became clear during planning that most environmental problems are caused by lack of
institutional capacity the ODMP process did not take the opportunity for necessary
institutional restructuring in natural resources management. The main criticism on
current thinking about implementation is that it is not clear what the role of non-
Government stakeholders, especially communities will be. The capacity and power of
the coordinating department is also under question. First of all the DEA has many other
responsibilities apart from coordinating the management and use of the Delta resources.
The department also has gross human resource shortages. With the economic downturn
and resource cuts it is also likely to face financial constraints for some time. What is a
more severe problem is that the Department has no powers to enforce most of the
provisions of the plan. That responsibility still remain with the sector institutions over
which DEA has no control. This is perhaps an opportunity for OKACOM through the TDA
and SAP processes to create an institutional structure that has the capacity to take
responsibility for management of the Delta resources as part of the Okavango River
Resources management strategy.
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TDA Botswana Stakeholder Involvement in the ODMP
5. References:
1. Bendsen, H. (2005a) "Documentation of Second round of Kgotla Meetings". ODMP/
University of Botswana, Harry Oppenheimer Okavango research Centre, Maun,
Botswana.
2. Bendsen, H. (2005b) "Observation, Suggestions and Concerns from Communities
Regarding ODMP Activities". ODMP/ University of Botswana, Harry Oppenheimer
Okavango research Centre, Maun, Botswana.
3. DEA (2005) "Okavango Delta Management Plan Project. Inception Report", Volume
1-Main Report. Maun, Botswana.
4. Magole, L. and Demotts, R. (2007) "The role of Universities in Community
Development and empowerment: Experience during the Okavango Delta
Management Planning Process" Presented at the University of Massachusetts
Lowell Conference on community-university partnerships, 26th 27th April, 2007,
Lowell, Ma, USA.
5. NCSA (2002) "Okavango Delta Management Plan Project Proposal". Gaborone,
Botswana.
11
TDA Botswana Stakeholder Involvement in the ODMP
The Okavango River Basin Transboundary Diagnostic Analysis Technical Reports
In 1994, the three riparian countries of the
establish a base of available scientific evidence
Okavango River Basin Angola, Botswana and
to guide future decision making. The study,
Namibia agreed to plan for collaborative
created from inputs from multi-disciplinary teams
management of the natural resources of the
in each country, with specialists in hydrology,
Okavango, forming the Permanent Okavango
hydraulics, channel form, water quality,
River Basin Water Commission (OKACOM). In
vegetation, aquatic invertebrates, fish, birds,
2003, with funding from the Global Environment
river-dependent terrestrial wildlife, resource
Facility, OKACOM launched the Environmental
economics and socio-cultural issues, was
Protection and Sustainable Management of the
coordinated and managed by a group of
Okavango River Basin (EPSMO) Project to
specialists from the southern African region in
coordinate development and to anticipate and
2008 and 2009.
address threats to the river and the associated
communities and environment. Implemented by
The following specialist technical reports were
the United Nations Development Program and
produced as part of this process and form
executed by the United Nations Food and
substantive background content for the
Agriculture Organization, the project produced
Okavango River Basin Transboundary Diagnostic
the Transboundary Diagnostic Analysis to
Analysis
Final Study
Reports integrating findings from all country and background reports, and covering the entire
Reports
basin.
Aylward, B.
Economic Valuation of Basin Resources: Final Report to
EPSMO Project of the UN Food & Agriculture Organization as
an Input to the Okavango River Basin Transboundary
Diagnostic Analysis
Barnes, J. et al.
Okavango River Basin Transboundary Diagnostic Analysis:
Socio-Economic Assessment Final Report
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment Project
C.A.
Initiation Report (Report No: 01/2009)
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment EFA
C.A.
Process Report (Report No: 02/2009)
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment
C.A.
Guidelines for Data Collection, Analysis and Scenario Creation
(Report No: 03/2009)
Bethune, S. Mazvimavi, Okavango River Basin Environmental Flow Assessment
D. and Quintino, M.
Delineation Report (Report No: 04/2009)
Beuster, H.
Okavango River Basin Environmental Flow Assessment
Hydrology Report: Data And Models(Report No: 05/2009)
Beuster,
H. Okavango River Basin Environmental Flow Assessment
Scenario Report : Hydrology (Report No: 06/2009)
Jones, M.J.
The Groundwater Hydrology of The Okavango Basin (FAO
Internal Report, April 2010)
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment
C.A.
Scenario Report: Ecological and Social Predictions (Volume 1
of 4)(Report No. 07/2009)
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment
C.A.
Scenario Report: Ecological and Social Predictions (Volume 2
of 4: Indicator results) (Report No. 07/2009)
King, J.M. and Brown,
Okavango River Basin Environmental Flow Assessment
C.A.
Scenario Report: Ecological and Social Predictions: Climate
Change Scenarios (Volume 3 of 4) (Report No. 07/2009)
King, J., Brown, C.A.,
Okavango River Basin Environmental Flow Assessment
Joubert, A.R. and
Scenario Report: Biophysical Predictions (Volume 4 of 4:
Barnes, J.
Climate Change Indicator Results) (Report No: 07/2009)
King, J., Brown, C.A.
Okavango River Basin Environmental Flow Assessment Project
and Barnes, J.
Final Report (Report No: 08/2009)
12
TDA Botswana Stakeholder Involvement in the ODMP
Malzbender, D.
Environmental Protection And Sustainable Management Of The
Okavango River Basin (EPSMO): Governance Review
Vanderpost, C. and
Database and GIS design for an expanded Okavango Basin
Dhliwayo, M.
Information System (OBIS)
Veríssimo, Luis
GIS Database for the Environment Protection and Sustainable
Management of the Okavango River Basin Project
Wolski,
P.
Assessment of hydrological effects of climate change in the
Okavango Basin
Country Reports
Angola
Andrade e Sousa,
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Biophysical Series
Helder André de
Okavango: Módulo do Caudal Ambiental: Relatório do
Especialista: País: Angola: Disciplina: Sedimentologia &
Geomorfologia
Gomes, Amândio
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Okavango: Módulo do Caudal Ambiental: Relatório do
Especialista: País: Angola: Disciplina: Vegetação
Gomes,
Amândio
Análise Técnica, Biofísica e Socio-Económica do Lado
Angolano da Bacia Hidrográfica do Rio Cubango: Relatório
Final:Vegetação da Parte Angolana da Bacia Hidrográfica Do
Rio Cubango
Livramento, Filomena
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Okavango: Módulo do Caudal Ambiental: Relatório do
Especialista: País: Angola: Disciplina:Macroinvertebrados
Miguel, Gabriel Luís
Análise Técnica, Biofísica E Sócio-Económica do Lado
Angolano da Bacia Hidrográfica do Rio Cubango:
Subsídio Para o Conhecimento Hidrogeológico
Relatório de Hidrogeologia
Morais, Miguel
Análise Diagnóstica Transfronteiriça da Bacia do Análise Rio
Cubango (Okavango): Módulo da Avaliação do Caudal
Ambiental: Relatório do Especialista País: Angola Disciplina:
Ictiofauna
Morais,
Miguel
Análise Técnica, Biófisica e Sócio-Económica do Lado
Angolano da Bacia Hidrográfica do Rio Cubango: Relatório
Final: Peixes e Pesca Fluvial da Bacia do Okavango em Angola
Pereira, Maria João
Qualidade da Água, no Lado Angolano da Bacia Hidrográfica
do Rio Cubango
Santos,
Carmen
Ivelize
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Van-Dúnem S. N.
Okavango: Módulo do Caudal Ambiental: Relatório de
Especialidade: Angola: Vida Selvagem
Santos, Carmen Ivelize
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Van-Dúnem S.N.
Okavango:Módulo Avaliação do Caudal Ambiental: Relatório de
Especialidade: Angola: Aves
Botswana Bonyongo, M.C.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report: Country:
Botswana: Discipline: Wildlife
Hancock, P.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module : Specialist Report: Country:
Botswana: Discipline: Birds
Mosepele,
K. Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report: Country:
Botswana: Discipline: Fish
Mosepele, B. and
Okavango River Basin Technical Diagnostic Analysis:
Dallas, Helen
Environmental Flow Module: Specialist Report: Country:
Botswana: Discipline: Aquatic Macro Invertebrates
Namibia
Collin Christian &
Okavango River Basin: Transboundary Diagnostic Analysis
Associates CC
Project: Environmental Flow Assessment Module:
Geomorphology
Curtis, B.A.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report Country:
Namibia Discipline: Vegetation
Bethune, S.
Environmental Protection and Sustainable Management of the
Okavango River Basin (EPSMO): Transboundary Diagnostic
Analysis: Basin Ecosystems Report
Nakanwe, S.N.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report: Country:
13
TDA Botswana Stakeholder Involvement in the ODMP
Namibia: Discipline: Aquatic Macro Invertebrates
Paxton,
M. Okavango River Basin Transboundary Diagnostic Analysis:
Environmental Flow Module: Specialist
Report:Country:Namibia: Discipline: Birds (Avifauna)
Roberts, K.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report: Country:
Namibia: Discipline: Wildlife
Waal,
B.V. Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module: Specialist Report: Country:
Namibia:Discipline: Fish Life
Country Reports
Angola
Gomes, Joaquim
Análise Técnica dos Aspectos Relacionados com o Potencial
Socioeconomic
Duarte
de Irrigação no Lado Angolano da Bacia Hidrográfica do Rio
Series
Cubango: Relatório Final
Mendelsohn,
.J.
Land use in Kavango: Past, Present and Future
Pereira, Maria João
Análise Diagnóstica Transfronteiriça da Bacia do Rio
Okavango: Módulo do Caudal Ambiental: Relatório do
Especialista: País: Angola: Disciplina: Qualidade da Água
Saraiva, Rute et al.
Diagnóstico Transfronteiriço Bacia do Okavango: Análise
Socioeconómica Angola
Botswana Chimbari, M. and
Okavango River Basin Trans-Boundary Diagnostic Assessment
Magole, Lapologang
(TDA): Botswana Component: Partial Report: Key Public Health
Issues in the Okavango Basin, Botswana
Magole,
Lapologang
Transboundary Diagnostic Analysis of the Botswana Portion of
the Okavango River Basin: Land Use Planning
Magole, Lapologang
Transboundary Diagnostic Analysis (TDA) of the Botswana p
Portion of the Okavango River Basin: Stakeholder Involvement
in the ODMP and its Relevance to the TDA Process
Masamba,
W.R.
Transboundary Diagnostic Analysis of the Botswana Portion of
the Okavango River Basin: Output 4: Water Supply and
Sanitation
Masamba,W.R.
Transboundary Diagnostic Analysis of the Botswana Portion of
the Okavango River Basin: Irrigation Development
Mbaiwa.J.E. Transboundary Diagnostic Analysis of the Okavango River
Basin: the Status of Tourism Development in the Okavango
Delta: Botswana
Mbaiwa.J.E. &
Assessing the Impact of Climate Change on Tourism Activities
Mmopelwa, G.
and their Economic Benefits in the Okavango Delta
Mmopelwa,
G.
Okavango River Basin Trans-boundary Diagnostic Assessment:
Botswana Component: Output 5: Socio-Economic Profile
Ngwenya, B.N.
Final Report: A Socio-Economic Profile of River Resources and
HIV and AIDS in the Okavango Basin: Botswana
Vanderpost,
C.
Assessment of Existing Social Services and Projected Growth
in the Context of the Transboundary Diagnostic Analysis of the
Botswana Portion of the Okavango River Basin
Namibia
Barnes, J and
Okavango River Basin Technical Diagnostic Analysis:
Wamunyima, D
Environmental Flow Module: Specialist Report:
Country: Namibia: Discipline: Socio-economics
Collin Christian &
Technical Report on Hydro-electric Power Development in the
Associates CC
Namibian Section of the Okavango River Basin
Liebenberg, J.P.
Technical Report on Irrigation Development in the Namibia
Section of the Okavango River Basin
Ortmann, Cynthia L.
Okavango River Basin Technical Diagnostic Analysis:
Environmental Flow Module : Specialist Report Country:
Namibia: discipline: Water Quality
Nashipili,
Okavango River Basin Technical Diagnostic Analysis: Specialist
Ndinomwaameni
Report: Country: Namibia: Discipline: Water Supply and
Sanitation
Paxton,
C.
Transboundary Diagnostic Analysis: Specialist Report:
Discipline: Water Quality Requirements For Human Health in
the Okavango River Basin: Country: Namibia
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TDA Botswana Stakeholder Involvement in the ODMP