As a result of the development of CBFM, the role of the government in natural resource management is being both restricted and redefined, resulting in an approach that was described by MEMA as “eyes on, hands off” (MEMA, 2001: 3). The Forestry and Beekeeping Division of the Tanzanian Ministry of Natural Resources and Tourism does not implement CBFM directly, but its role consists of policy guidance, quality control and to offer guidance, capacity-building and training (Blomley, 2006). The principal institution in CBFM has become the Village Natural Resources Committee (VNRC), which acts as the institution responsible for day to day management of the VLFR. Table 5.1 outlines the main institutions involved in CBFM and the roles set out for them according to policy.
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National Sanctioning of land use plans and officially gazette the VLFR Policy guidance
Advice
Capacity-building and training provision
District Council District Collect taxes from the VLFR (5%)
Facilitate and approve the land use plan for the VLFR Declaration of a VLFR alongside the Village Council Monitor the VNRC bank account
Village Council Village To prepare the management plan for the forest land as part of the gazettement process
Control revenue collection and spending of the VNRC To decide with the VNRC on expenses for the committee
Authority to apprehend anyone in contravention of the management plan
Implement forest management plan for the VLFR
To hold monthly meetings and prepare monthly reports on revenue, patrols and resource monitoring
Carry out monthly perception interviews in the community To prepare quarterly accounts and reports to be read aloud at village assembly meetings
Enforce rules of use and village bye-laws Resource monitoring
Conflict resolution
Enforcement of sanctions for illegal activities Collection of revenue from the VLFR
NGOs/
development organisations
All Facilitate application and gazettement of the VLFR
Private Sector All Enter into investment agreements with the VNRC (through purchase of permits)
Assist in protection of natural resources
Adhere to the terms and conditions of the VLFR land use plan and investment agreement
Table 5.1: Principal Roles and Responsibilities of Institutions within Community-Based Forest Management Policy (adapted from Boiesen and Lund, 2003; MEMA, 2003; Ministry of Natural Resources and Tourism, 2009). The roles set out in this table were also particularly informed by Semi Structured Interviews P1, P9, P11, P12, P28 and Focus Group P196.
120 The institution charged with the chief management role, the VNRC, is a unique component of the village government system in Tanzania, as it is the only sub-committee of the Village Council that cannot consist of Village Council members, but must be elected through the village assembly (Boiesen and Lund, 2003). Its members are elected every five years (Lund, 2007). Within the CBFM system, the VNRC is the executive authority, with power to arrest defenders and collect revenue (Boiesen and Lund, 2003). It is important to note that in VLFRs the VNRC, through the creation of a management plan, is able to set its own permission system, prices, quotas and fine levels and sanction systems (Koppers et al., 2004).
No other body is able to issue permits for use within the VLFR (Koppers et al., 2004). The VNRC constitutes a standard committee structure, which must represent all the sub-villages within the village and consider gender representation (Boiesen and Lund, 2003; MEMA, 2003). The Chairman distributes all reports to the district offices, Village Council and assembly, prepares all the VNRC meetings and chairs them. The Secretary is responsible for keeping records of all VNRC meetings and other meetings that have discussed the VNRC and for filling in all monthly forms and keeping copies of them. The Treasurer records all permits, receipts and payment vouchers, collects all revenue and prepares the financial report monthly for the VNRC meetings. There is also an Interview Chairman, who is responsible for carrying out interviews with the local community to record uses of the forest, perceptions of the state of natural resources and the governance of the project. There are 5-7 ordinary members who assist in decision-making processes and monitor the performance of the VNRC and its members. The Patrol Commander ensures that patrols are carried out and that patrol forms are delivered to the Secretary and finally, 3 patrol guards carry out the actual patrols and fill in the patrol forms (Boiesen and Lund, 2003). According to Boiesen & Lund (2003) this institutional system leaves the top members of the committee with responsibilities of linking with other organisations and for the collection and distribution of information and material. They also argue that the patrol guards hold a special position on the VNRC, as they are not full members, having been “consciously removed from the VNRC, as it is believed that their role as ‘policemen’ will inflict on the possibility of the other VNRC members to build more friendly relations with the villagers” (Boiesen and Lund, 2003: 79). The VNRC is responsible for monitoring the resources within the VLFR, which it does through three methods; revenue accounts, perception interviews and monitoring the patrolling of the forest (Ministry of Natural Resources and Tourism, 2009). The perception interviews carried out must number at least five per month from people in different sub-villages, and should ask
121 interviewees to describe changes and developments in the forest resource, and to what they attribute these developments (Boiesen and Lund, 2003).
The VNRC must produce a monthly report, which includes a summary of the committee’s activities, including meetings, general assemblies, workshops, a summary of permits, fines, revenue and expenditure, a summary of patrol observations, and a summary of perception interviews carried out (MEMA, 2003). This report is kept by the VNRC and copies are sent each month to the District Natural Resources Office, and to the Ward Executive Officer (MEMA, 2003).