Indigenous Peoples and Conservation Organizations

Indigenous Peoples and 

Conservation Organizations 

Experiences in Collaboration

Indigenous Peoples and 


Experiences in Collaboration 

Ron Weber, John Butler, and Patty Larson, Editors 

February 2000

Support for this publication was provided by the Biodiversity Support Program, the Ford Foundation, and 

World Wildlife Fund. 

The Biodiversity Support Program (BSP) is a consortium of World Wildlife Fund, The Nature 

Conservancy, and World Resources Institute, funded by the United States Agency for International 

Development (USAID). This publication was made possible through support provided to BSP by the 

Global Bureau of USAID, under the terms of Cooperative Agreement Number DHR-5554-A-00-8044-00. 

The opinions expressed herein are those of the authors and do not necessarily reflect the views of USAID. 

Typography and layout by Williams Production Group

CONTENTS 

Acknowledgments 

Preface 

iv 

v 

Part One: Introduction 

Chapter 1 Conservation and Indigenous Peoples 3 

Chapter 2 Conservation Partnerships with Indigenous Peoples 7 

Part Two: Case Studies 

Chapter 3 Indigenous Federations and the Market: 

The Runa of Napo, Ecuador Dominique Irvine 21 

Chapter 4 Lessons in Collaboration: The Xavante/WWF 

Wildlife Management Project in Central Brazil Laura R. Graham 47 

Chapter 5 Holding On to the Land: The Long Journey of the 

Sirionó Indians of Eastern Lowland Bolivia Wendy R. Townsend 73 

Chapter 6 WWF’s Partnership with the Foi of Lake Kutubu, 

Papua New Guinea Joe Regis 91 

Chapter 7 Environmental Governance: Lessons from the Ju/’hoan 

Bushmen in Northeastern Namibia Barbara Wyckoff-Baird 113 

Part Three: Conclusions 

Chapter 8 Signposts for the Road Ahead 139 

Contributors 147 

Annex. Indigenous Peoples and Conservation: WWF Statement of Principles 149

iv 

Acknowledgments 

The editors would like to thank the case study authors, whose work forms the core of this book, for 

their dedication to carefully documenting project experiences so that others can learn from them. 

Thanks also go to participants in WWF’s 1998 workshop on collaboration with indigenous peoples for 

sharing their firsthand knowledge to help identify approaches to effective collaboration. This book 

would not have come to fruition without the long-term commitment, advice, and contributions of Janis 

Alcorn, Bronwen Golder, Gonzalo Oviedo, Femy Pinto, Kirsten Silvius, Stephanie Thullen, Margaret 

Williams, Diane Wood, and Sejal Worah. Special appreciation goes to Barbara Wyckoff-Baird, who 

coordinated the development of the case studies and played a lead role in designing the 1998 workshop. 

Last, but not least, we thank the initiative’s funders—the Ford Foundation; Peoples, Forests and Reefs, 

a USAID-funded program of the Biodiversity Support Program; and World Wildlife Fund—for seeing 

the importance of sharing lessons and guidelines for improving collaborative efforts between conservation 

organizations and indigenous peoples.

v 

Preface 

Each day, more and more of the world’s species are losing their toeholds on the future. As cities and 

agricultural lands spread, wildlife habitats are increasingly enveloped and erased by the expanding rings 

of modern human activity. At the margins of these circles of change, in the last remaining remnants of 

tropical forests, grasslands, and pristine coasts, live isolated peoples with traditional ties to their lands 

and waters. Indigenous people inhabit over 85 percent of the world’s protected areas. New proposed 

protected areas almost invariably include areas claimed as indigenous territories. In some countries, 

more biodiversity is found in indigenous reserves than in nature preserves. And so it is that, at the end of 

the twentieth century, conservationists are urgently seeking ways to collaborate with indigenous peoples 

to preserve biodiversity and expand wildlife habitats for the future. 

Conservationists have found that such collaboration is not always easy—either locally at the level of 

communities or regionally at the level of federations. Collaboration remains a work in progress. 

Indigenous groups are suspicious that conservationists intend to alienate their lands from them. While 

traditional resource management and value systems generally support conservation objectives, indigenous 

communities often lack people with expertise for monitoring biodiversity levels and planning land 

use that is compatible with habitat maintenance. They sometimes lack the organizational capacity to 

interact with outsiders or to manage project funds. They face multiple problems that accompany modernization. 

They usually have very little political weight at the national level and are sometimes viewed 

as troublemakers by national governments. At the international level, however, indigenous peoples are 

increasingly asserting their right to be recognized as conservation partners, and conservation NGOs 

increasingly find indigenous interests represented in stakeholder groups. 

There is a critical need to strengthen the ability and rights of indigenous peoples to manage biodiversity 

and find productive avenues for working with conservation NGOs. Donors increasingly recognize this 

and are responding by providing technical assistance to indigenous resource managers, strengthening the 

capacity of indigenous groups to communicate effectively with outside NGOs and government agencies, 

and supporting appropriate policy reforms. Yet insufficient attention has been paid to sharing the lessons 

NGOs have learned from their efforts to collaborate with indigenous peoples. 

World Wildlife Fund’s (WWF) project experiences can provide lessons for all conservation groups, and 

foster a broader understanding of the implications of applying WWF’s 1996 statement of principles for 

working with indigenous peoples. While the case studies in this volume review efforts designed with 

more limited objectives than the new ecoregional initiatives WWF is moving toward, the lessons about 

collaboration with indigenous communities remain valid. And while the meaning of indigenous differs 

in Asia, Africa, and Latin America, and the degree of self-identification as indigenous peoples varies 

within regions, the general lessons and insights from WWF field experiences can be applied globally in 

all types of conservation initiatives involving marginalized ethnic minorities. 

I hope that the lessons from this first-ever review of WWF’s engagement with indigenous communities 

will be widely read, and integrated into the operational guidelines of conservation organizations and 

agencies around the world. 

Janis B. Alcorn 

Director, Peoples, Forests & Reefs Program 

Biodiversity Support Program, Washington, D.C.

PART ONE: INTRODUCTION

CHAPTER 1 

Conservation and Indigenous Peoples 

In The Diversity of Life, biologist Edward O. 

Wilson notes that five cataclysmic “spasms of 

extinction” from meteorite collisions, climatic 

changes, and other natural events have swept like 

scythes through the biosphere during the past 600 

million years. He postulates that a sixth great 

cycle of extinction is now under way, this one 

caused entirely by humans. Perhaps one-fifth of 

the world’s biodiversity will vanish by the year 

2020 if current trends persist. 

Less well known is another cycle of extinctions 

that parallels the one presently sweeping through 

the biosphere. Traditional societies, with their 

rich cultural heritage and historical link to nature, 

are vanishing at a rate unmatched in recorded 

history, and as many as half of those that remain 

are expected to disappear in the first 100 years of 

the new millennium. 

It only takes a glance at a map to show why conservationists 

should be concerned—biodiversity 

and cultural diversity are highly correlated. If 

one uses language as an indicator of cultural 

diversity, then six of the nine countries that 

account for 60 percent of all human languages 

are also areas of biological “megadiversity” 

teeming with plant and animal species so numerous 

a multitude remains uncounted. In terms of 

biomass, tropical rain forests are known to be the 

richest and most varied habitats on the planet. 

They are also the most culturally diverse regions, 

home to as many as half the world’s more than 

4,000 indigenous peoples. 

This is significant because, until recently, most 

of these peoples lived in relative harmony with 

their environments, using and managing their 

resource bases sustainably. The environmental 

alterations made by indigenous groups, such as 

the Bentian Dayak rattan farmers of 

Kalimantaan, were so subtle, in fact, that outsiders 

have mistakenly presumed vast stretches 

of the Earth to be wildernesses barren of human 

populations. The movement to establish 

national parks and reserves that began at the 

turn of the twentieth century was intended to 

keep at least a representative portion of these 

areas pristine, removed from human predation 

as the pace of technology and economic development 

accelerated. By the last quarter of the 

century it became clear in much of the world 

that this idea had serious flaws. Conservationists 

who persuaded the state to establish 

protected areas found many of these victories to 

be hollow. Government agencies often lacked 

either the political will or the manpower, skills, 

and funding to defend park boundaries from 

outside encroachment.

4 Conservation and Indigenous Peoples 

By the 1980s, some conservation organizations 

began to develop new strategies designed to turn 

local communities into allies of park conservation. 

Some approaches focused on creating rings 

of low-intensity development around parks that 

would act as barriers to colonization by migrant 

farmers who practiced slash-and-burn agriculture. 

Others focused on projects that more actively 

involved local populations in managing wildlife 

and other resources in ways that gave them a tangible 

stake in preserving habitat not only around 

but in protected areas. Sustainable development 

that merged income generation and conservation 

became a new watchword. 

WWF published a book about its experiences 

during a decade of work with rural communities 

in integrated conservation and development 

projects (Larson et al. 1996). Valuable lessons 

were learned that are being applied in working 

with communities around the world. Yet this 

field experience also suggested that the rural 

poor are far from monolithic, varying not only 

from country to country, but within national 

borders. In fact, many of the projects involved 

populations that were marginalized from the 

mainstream by language and culture as well as 

class and income. And it became increasingly 

evident that these groups were not intruders to 

wilderness ecosystems but integral parts of 

them. Indeed, in many places national reserves 

and parks had been carved out of their traditional 

territories. Conservationists were in danger 

of adding to the misery of the world’s most 

disenfranchised peoples. WWF responded by 

drafting a policy statement respecting the 

integrity and rights of traditional peoples and 

establishing guidelines for its relations with 

them (see Annex). 

It became apparent that working with indigenous 

communities involves complex issues that pose 

new challenges but also open up new opportunities. 

Indigenous peoples are in many ways more 

organized and better able to represent their own 

interests and make their case to outsiders than 

ever before. Indigenous groups around the world 

have established more than a thousand grass-roots 

organizations to enhance their livelihoods and 

gain greater control of their land and resources 

(Hitchcock 1994). Many indigenous groups are 

politically active and play an important role in 

influencing national and international environmental 

and sustainable development policies. 

At the same time, these communities stand at a 

crossroads and confront an uncertain future. If 

many indigenous groups once lived in relative 

balance with their environments, that equation has 

been severely disrupted. Indigenous peoples face 

mounting pressures from the outside as encroachment 

by agribusiness, by petroleum, mineral, and 

timber combines, and by uprooted, landless farmers 

shrinks traditional territories. They also face a 

growing internal challenge as their population 

densities increase and the market economy undermines 

subsistence strategies and the cultural traditions 

that supported them. Indigenous peoples are 

not only in danger of losing their land but the 

identity the land gave them. They are increasingly 

under pressure to augment rates of resource 

extraction to unsustainable levels. If they resist 

doing so, someone else is ready to argue for the 

right to do so—and the state, starved for funds, is 

often more than ready to listen. 

Indigenous groups that have maintained close 

contact with the land know it well. Where cultures 

and traditional resource management practices 

remain relatively intact, they often have 

mechanisms for dealing with resource scarcity or 

other changes in the natural resource base, but 

have limited means for assessing the side effects 

of new technologies or new kinds of exploitation. 

A potential role for conservation organizations is 

to help indigenous groups obtain relevant legal, 

scientific, and economic information, weigh their 

options, and select strategies that are appropriate. 

This is more complicated than it seems, since 

many traditional peoples face the dual challenge 

of organizing themselves institutionally, first to 

claim legal title to their land and second to manage 

the land wisely. 

In looking at the issue of conservation and 

indigenous peoples, two key questions emerge: 

What are the common concerns of conservation 

organizations and indigenous peoples? How can 

they collaborate effectively? 

To better understand the issues involved, WWF’s 

Latin America and Caribbean Program (LAC) 

decided in 1996 to survey its experience working 

with indigenous peoples. From a decade of 

funding, 35 projects were identified that had at 

least one component related to indigenous peo-

Conservation and Indigenous Peoples 5 

ple. These projects ranged from efforts in 

Mexico and Central America that involved the 

Maya, Miskito, and Kuna Indians, to efforts in 

South America with a wide variety of indigenous 

groups in Brazil, Peru, Colombia, Ecuador, 

Chile, Argentina, and Bolivia. 

The spectrum of project activities has been as 

broad as the geographic distribution was wide. 

Support has been provided for training, educational, 

and capacity-building efforts. Some projects 

focused entirely on a specific issue of 

interest to an indigenous group, such as the 

Xavante’s concern about declining wildlife populations 

on their homeland in central Brazil. 

Other efforts, such as the Pacaya–Samiria project 

in Peru, included indigenous people as stakeholders 

in larger integrated conservation and development 

projects. Over time, WWF gathered 

experience at working with indigenous organizations 

that ranged in size from village associations 

to regional federations, and national and even 

transnational confederations. All of these projects 

contributed to WWF’s growing understanding 

of the need for meaningful partnerships with 

indigenous peoples on conservation and natural 

resource management at the community, national, 

and international levels. 

In collaboration with WWF’s People and 

Conservation Program, LAC decided to select 

several case studies for in-depth review and augment 

them with case studies from other areas of 

the globe to identify common processes and lessons 

that could help guide future project activity. 

Respected experts in conservation and development 

who were closely involved with the communities 

and projects being profiled were asked 

to prepare the case studies. They were asked to 

examine how conservation organizations collaborated 

with indigenous groups to develop a common 

agenda and strengthen local capacity to 

implement it, and how this process affected project 

results. A workshop brought together field 

staff from four regional programs within WWF 

to discuss the studies and bring their own experiences 

to bear in analyzing issues that had been 

spotlighted. An overview of the history and situation 

of indigenous peoples worldwide, presented 

at the workshop, is included here to provide a 

contextual lens that readers can use to bring individual 

cases into sharper focus. 

The structure of this book mirrors the process of 

its formation. The overview concludes Part One. 

Part Two contains the five case studies that form 

the book’s core. Part Three discusses common 

themes and closes with a look ahead at how lessons 

might be applied. 

Although the sample of case studies is small, 

taken together they suggest how human cultures 

have mirrored the richness and diversity of the 

natural environments that helped shape them. 

Although they are from different parts of the 

world and involve peoples who would have great 

difficulty speaking to one another directly, the 

experiences in one locale often throw light on 

efforts in the other case studies to locally manage 

resources vital to community survival. Chapter 3 

examines an attempt to selectively harvest, plane, 

and market wood products for export by 

Quichua-speaking communities in an oil-rich 

area of the Ecuadorian Amazon. Chapter 4 presents 

an effort in Brazil by outsiders and a 

Western-educated Xavante leader to process and 

market native fruits, and contrasts it with a project 

to manage subsistence game harvests which 

has helped spark a cultural revival and engage 

the broader community. Chapter 5 looks at the 

Sirionó Indians of eastern Bolivia, who have battled 

back from the verge of extinction to win a 

territory, and now must develop a resource management 

plan to hold on to it. Chapter 6 examines 

how subsistence fisheries management is 

taking hold among the Foi people of Lake 

Kutubu in Papua New Guinea (PNG), one of the 

crown jewels of world biodiversity. Chapter 7 

explores how the Ju/’hoan Bushmen in northeastern 

Namibia are working with government planners 

to adapt traditional resource management 

systems, invent new institutional structures, and 

develop ecotourism in the Kalahari Desert. 

Readers should keep in mind two sets of issues. 

The first set is internal to indigenous groups and 

involves questions about cultural intactness, institutional 

capacity, and the mix of subsistence and 

cash economies. Issues about land tenure and 

usage rights are central here. The second set of 

issues is external and concerns the kind and 

degree of involvement by outside actors. Two of 

the case studies, for example, involve nearby 

national parks, but government policies in the 

two cases are polar opposites, shedding light on

6 Conservation and Indigenous Peoples 

the difference it makes when the state encourages 

rather than discourages community involvement 

in managing natural resources. Another example 

is petroleum development. In the case of Napo, 

Ecuador, local communities are scrambling to 

cope with the side effects of unbridled development 

by multinational firms in partnership with 

the state. In PNG, a petroleum consortium is trying 

to minimize its intrusiveness and share the 

benefits of newfound wealth with local communities. 

One might also note the role that tenure 

plays in the two cases, since indigenous peoples 

in PNG enjoy customary ownership and usage 

rights unparalleled in most areas of the world. 

A final example is the role conservation organizations, 

particularly WWF, played in these case studies. 

In some, WWF was a peripheral collaborator 

in a cobbled-together coalition. In others its goal 

was to be an active partner. Sometimes, this difference 

reflected a disparity in resources between 

partners whose primary focus was socioeconomic 

development and those whose long-term focus 

was conservation. Other times, it reflected where 

a project fell on WWF’s learning curve. The 

Brazil and Ecuador projects, for instance, date 

from WWF’s first experiences with communitybased 

conservation and development, while the 

examples from PNG and Namibia began later and 

benefited from what was learned before. 

Lessons from the case studies are also relevant to 

new conservation contexts. During the past two 

years, WWF and other conservation organizations 

have widened their focus to target conservation 

resources on ecoregions—large geographic 

areas that contain tightly integrated sets of 

ecosystems and important ecological interactions 

and evolutionary mechanisms that generate and 

maintain species. The new strategy grows out of 

heightened concern that successfully protecting 

isolated patches of wilderness and specific 

species is not enough to ward off accelerating 

threats to the planet’s biodiversity. A new scale 

of thinking, planning, and acting is needed to 

meet the scale of the biological challenge. 

Collaboration of diverse stakeholders is a primary 

strategy for achieving these ambitious goals 

(Dinerstein et al. 1999). Examples of emerging 

partnerships with indigenous peoples and other 

issues involved in working at this larger scale are 

provided in the conclusion. 

References 

Dinerstein, Eric, George Powell, David Olson, 

Eric Wikramanayake, Robin Abell, Colby 

Loucks, Emma Underwood, Tom Allnut, Wes 

Wettengel, Taylor Ricketts, Neil Burgess, Sheila 

O’Connor, Holly Strand, and Melody Mobley. 

1999. Workbook for Conducting Biological 

Assessments and Developing Diversity Visions 

for Ecoregion-Based Conservation, Part I: 

Terrestrial Ecoregions. Washington, D.C.: World 

Wildlife Fund. 

Hitchcock, Robert K. 1994. Endangered 

Peoples: Indigenous Rights and the Environment. 

Colorado Journal of International Environmental 

Law and Policy 5 (1):11. 

Larson, Patricia S., Mark Freudenberger, and 

Barbara Wyckoff-Baird. 1996. WWF Integrated 

Conservation and Development Projects. 

Washington, D.C.: World Wildlife Fund. 

Wilson, Edward O. 1992. The Diversity of Life. 

Cambridge, Mass.: Harvard University Press.

CHAPTER 2 

Conservation Partnerships with 

Indigenous Peoples 

To form effective partnerships, one must know 

one’s partners well. In the case of indigenous 

peoples, this poses special problems. The populations 

are so diverse and their marginalization so 

deep in many cases that outsiders frequently lack 

a clear picture of whom exactly they are working 

with. This chapter reviews the terminology in 

order to explain why these groups are important 

to conservation of global biodiversity. It then 

reviews the broader policy and programmatic 

context in which indigenous peoples and conservation 

organizations are interacting. It closes by 

examining how WWF approaches its work with 

indigenous peoples, and profiles issues that other 

conservation groups are likely to face as they 

take on similar activities. 

I. A Global Overview 

1.1 Defining What Indigenous Means 

Given their diverse histories, cultures, and 

locales, it is not surprising that no single term 

completely encompasses the people who are the 

focus of this book. Officially, WWF uses the 

definition (or “statement of coverage”) of the 

International Labour Organization (ILO) in 

Convention 169—Concerning Indigenous and 

Tribal Peoples in Independent Countries. 1 

According to ILO (1998): 

The term indigenous refers to those who, 

while retaining totally or partially their traditional 

languages, institutions, and 

lifestyles which distinguish them from the 

dominant society, occupied a particular 

area before other population groups 

arrived. This is a description which is 

valid in North and South America, and in 

some areas of the Pacific. In most of the 

world, however, there is very little distinction 

between the time at which tribal and 

other traditional peoples arrived in the 

region and the time at which other populations 

arrived. In Africa, for instance, there 

is no evidence to indicate that the Maasai, 

the Pygmies or the San (Bushmen), 

namely peoples who have distinct social, 

economic and cultural features, arrived in 

the region they now inhabit long before 

other African populations. The same is 

true in some parts of Asia. The ILO therefore 

decided, when it first began working 

intensively on these questions shortly after 

World War II, that it should refer to indigenous 

and tribal peoples. The intention was 

to cover a social situation, rather than to 

establish a priority based on whose ancestors 

had arrived in a particular area first. 

In addition, the description of certain

8 Conservation Partnerships 

population groups as tribal is more easily 

accepted by some governments than a 

description of those peoples as indigenous. 

Another term that has become relevant for biodiversity 

conservation since the Convention on 

Biological Diversity came into force is that of 

“local communities embodying traditional 

lifestyles,” or “traditional peoples” for short. 

This term has a socioeconomic as well as a cultural 

dimension. It usually implies a largely subsistence 

economy based on close ties to the land. 

International organizations that are working with 

indigenous peoples, such as the UN Working 

Group on Indigenous Populations, the World 

Bank, and the European Union, have identified 

the following characteristics of indigenous peoples 

relative to natural resource management: 

• ancestral attachment to lands and resources; 

• management of relatively large territories 

or areas; 

• collective rights over resources; 

• traditional systems of control, use, and 

management of lands and resources; 

• traditional institutions and leadership 

structures for self-governance and 

decision making; 

• systems for benefit sharing; 

• traditional ecological knowledge; and 

• subsistence economies that are largely selfsufficient 

and rely on resource diversity 

rather than monocultures or simplified 

ecosystems. 

The question for conservation organizations is 

whether these characteristics apply as well to traditional 

rural peoples, mainly in Asia, Africa, and 

Latin America, who generally are not called or 

don’t call themselves “indigenous.” In Latin 

America, for example, this question can be asked 

about Afro–Latin American groups like the 

Maroons of Suriname, the black communities of 

the Chocó forests, and the Garífunas of Central 

America. If, generally speaking, these groups 

share most of the characteristics listed above, an 

essential difference between traditional and 

indigenous peoples has been the latter’s claimed 

right to political self-determination, based on a 

distinct identity and culture and often on prior 

occupation. This distinction, however, is also 

blurring since traditional peoples often have distinctive 

cultures that marginalize them from 

mainstream society, and many ethnolinguistic 

communities around the world are claiming the 

right to political self-determination. 

In many cases, the primary difference between 

indigenous and traditional peoples may be one of 

aboriginality to the place in question, particularly 

in cases where colonialism has uprooted and dispossessed 

indigenous peoples. Aboriginality, in 

many legal systems, can be used to support 

claims to limited sovereignty, a right that the 

occupying power sometimes has implicitly 

acknowledged through the signing of treaties. 

Until recently, these rights have remained latent, 

and aboriginal peoples have faced a Hobson’s 

choice between cultural assimilation and remaining 

wards of the state. When indigenous peoples 

are able to establish these rights legally, they 

have an important power that traditional peoples 

often lack: the power to say “no” to outsiders, 

whether they are conservationists or developers. 

For WWF’s conservation work, the differences 

between indigenous and traditional peoples are 

far less important than the similarities. Therefore 

WWF policies that refer to indigenous peoples 

refer also to tribal peoples, and by extension to 

traditional peoples. 

1.2 Population Estimates and Distribution 

Using ILO Convention 169’s definition, there are 

some 300 million men, women, and children 

worldwide who can be called “indigenous and 

tribal” people living within the borders of independent 

nation states in North and South America, 

Northern Europe, Asia, Africa, and Oceania. The 

land they occupy spans a wide geographical range, 

including the polar regions, northern and southern 

deserts, and tropical savannas and forests. 

Indigenous peoples account for 4,000 to 5,000 of 

the nearly 7,000 spoken languages, representing 

much of humankind’s cultural diversity. They 

include groups as disparate as the Quechua from 

Bolivia, Ecuador, and Peru, who collectively number 

more than 10 million people, and the tiny band 

of Gurumalum in Papua New Guinea who number 

fewer than 10 individuals (IUCN 1997, 30). 

Although these groups account for only about 6 

percent of the world’s population (Hitchcock 

1994), they live in areas of vital importance to

Conservation Partnerships 9 

conservationists. Alan Durning (1992) notes that 

“the vast majority of the world’s biological diversity 

... is in landscapes and seascapes inhabited 

and used by local peoples, mostly indigenous.” 

This is reflected in the correlation between linguistic 

diversity and biodiversity. Of the nine 

countries that account for 60 percent of all human 

languages, six are also centers of biodiversity that 

contain immense numbers of plant and animal 

species (see figure 2.1). Ten of the 12 megacenters 

for biodiversity listed in figure 2.1 can be 

found among the 25 countries containing the 

largest numbers of endemic languages (see lists 

2.1 and 2.2). Bio-rich tropical rain forests are 

also culturally diverse, containing about 2,000 

indigenous peoples, nearly half the world’s total. 

Indigenous peoples are linked with the land they 

occupy through highly sophisticated resource 

management practices. Most “wildernesses,” 

especially those that currently are sparsely populated, 

are not pristine (Gomez-Pompa and Kaus 

1992). Many seemingly untouched landscapes are 

actually cultural landscapes, either created or 

modified by humans through natural forest management, 

cultivation, or the use of fire. According 

to a Canadian indigenous peoples’ organization, 

the Four Directions Council (1996), “the territories 

in which indigenous peoples traditionally live are 

shaped environments, with biodiversity as a 

priority goal, notwithstanding the fact that the 

modifications may be subtle and can be confused 

with the natural evolution of the landscape.” 

WWF International’s People and Conservation 

Unit has conducted an analysis that supports these 

views. It superimposed maps of WWF’s 200 priority 

ecoregions around the world onto maps showing 

the distribution of indigenous cultures. The 

results show a significant overlap of cultural and 

biological diversity (see table 2.1). Although the 

analysis is not yet complete, preliminary results 

confirm the importance of indigenous peoples and 

their issues for scaling up conservation efforts. 

1.3 Threats, Vulnerability, and 

Marginalization 

Tragically, and despite their contributions to 

biodiversity conservation and to human culture, 

indigenous societies are disappearing at an unprecedented 

pace. Approximately 10 percent of 

existing indigenous languages are nearly extinct, 

endangering the cultures of hundreds of peoples. 

Among countries facing the highest rates of language 

extinction are Australia with 138 and the 

United States with 67. During the next century, at 

least half the existing indigenous languages are 

projected to disappear, erasing the ecological 

knowledge accumulated by countless generations. 

Indigenous cultures face threats from many directions. 

Often they are direct targets of hatred and 

Figure 2.1 Countries with Cultural and Biological Megadiversity 

Highest Cultural Diversity 1 Highest Biological Diversity 2 

Papua New 

Guinea 

Nigeria 

Cameroon 

Indonesia 

India 

Australia 

Mexico 

Zaire 

Brazil 

Colombia 

China 

Peru 

Malaysia 

Ecuador 

Madagascar 

1 Countries where more than 200 languages are spoken 

2 Countries listed by biologists as ‘megadiversity’ countries 

for their exceptional numbers of unique species 

Source: Worldwatch Institute, cited in Durning (1992:16)


hostility from the groups that dominate mainstream 

national societies. Other times they are 

victimized by policies and actions that are well 

intentioned but harmful. The imposition of alien 

land tenure, religions, and educational systems 

may be motivated by the desire to “advance,” 

“integrate,” or help indigenous peoples “progress” 

in the modern world, yet these efforts often are 

self-defeating because they undermine the identity 

and values systems of the people being 

“helped.” Until recently the conventional wisdom 

of modernity held that the rural poor, including 

indigenous populations, were part of the problem 

of “underdevelopment,” sometimes even the main 

problem, rather than part of the solution. Blinded 

by cultural arrogance, too many conservation and 

development projects have gone awry or done 

more harm than good because they did not tap the 

resourcefulness of local communities. 

The accelerating integration of the global 

economy now touches indigenous people living 

in the remotest corners of the planet. 

Technological change and consumerism introduced 

by the public and private sectors have 

undermined traditional value systems as the conversion 

from a subsistence economy to a cash 

economy follows in the wake of large-scale 

efforts to extract mineral, timber, and other natural 

resources. The result in many places has been 

a loss of social cohesion, displacement from 

traditional territories, dependency, impoverishment, 

and disease. 

List 2.1 Top 25 Countries by Number of Endemic Languages 

1. Papua New Guinea (847) 

2. Indonesia (655) 

3. Nigeria (376) 

4. India (309) 

5. Australia (261) 

6. Mexico (230) 

7. Cameroon (201) 

8. Brazil (185) 

9. Zaire (158) 

10. Philippines (153) 

11. USA (143) 

12. Vanuatu (105) 

13. Tanzania (101) 

14. Sudan (97) 

15. Malaysia (92) 

16. Ethiopia (90) 

17. China (77) 

18. Peru ( 75) 

19. Chad (74) 

20. Russia (71) 

21. Solomon Islands (69) 

22. Nepal (68) 

23. Colombia (55) 

24. Côte d’Ivoire (51) 

25. Canada (47) 

List 2.2 Megadiversity Countries: Concurrence with Endemic Languages 

(Countries in top 25 for endemic languages in bold) 

Countries listed alphabetically (rank in “Top 25,” list 2.1, in parentheses) 

Australia (5) 

Brazil (8) 

China (17) 

Colombia (23) 

Ecuador— 

India (4) 

Indonesia (2) 

Madagascar— 

Malaysia (15) 

Mexico (6) 

Peru (18) 

Zaire (9) 

Source: Maffi 1999.


Table 2.1 

Ethnolinguistic Groups (EG) in Global 200 Terrestrial Ecoregions (TER) 

Biogeographical 

Realm 

Number of 

terrestrial 

ecoregions 

(TERs) in realm 

Number and 

percentage of 

TERs in realm 

that contain EGs 

Number of 

ethnolinguisitic 

groups (EGs) 

in realm 

Number and 

percentage of 

the realm s EGs 

living in the 

realm s TERs 

Afrotropical 

Neotropical 

Nearctic 

Indomalayan 

Oceanian 

Palearctic 

Australasian 

WORLD 

32 

30 

11 

24 

3 

21 

15 

136 

30 (94%) 1,934 1,364 (71%) 

132 (97%) 2 6,867 3 4,889 (71%) 

28 (93%) 

830 

535 (64%) 

11 (100%) 

24 (100%) 

223 

1,547 

80 (36%) 

1,117 (72%) 

3 (100%) 

153 

9 (6%) 

21 (100%) 

15 (100%) 

748 

1,432 

662 (89%) 

1,122 (78%) 

Source: WWF-International, People and Conservation Program, Gland, Switzerland, 1998. 

1.4 Indigenous Peoples and International 

Environmental Policy 

WWF’s indigenous peoples policy recognizes that 

“unfortunately, [indigenous] cultures have become 

highly vulnerable to destructive forces related to 

unsustainable use of resources, population expansion, 

and the global economy,” and that “industrialized 

societies bear a heavy responsibility for the 

creation of these destructive forces.” It points to 

the need to “correct the national and international 

political, economic, social, and legal imbalances 

giving rise to these destructive forces, and to 

address their local effects.” 

WWF is not alone in this recognition. The 1992 

United Nations Conference on Environment and 

Development in Rio de Janeiro recognized 

indigenous peoples as important stakeholders in 

environment and development policies at the 

international level. Almost every relevant international 

instrument on the environment signed at 

or developed after the Rio Summit includes provisions 

related to indigenous peoples or has initiated 

processes to promote their participation. 

Agenda 21, the international agreement on follow-up 

actions to the conference, considers 

indigenous peoples to be a “Major Group” in 

trailblazing a path toward sustainable development, 

and proposes a number of objectives and 

activities that are compatible with WWF’s 

agenda (see box 2.1). The international policy 

forums that address conservation issues—the 

Commission on Sustainable Development, the 

Convention on Biological Diversity, the 

Convention to Combat Desertification, the Inter- 

Governmental Forum on Forests, and the Ramsar 

Convention, among others—include indigenous 

peoples as essential stakeholders. In policy 

debates, the interests of indigenous peoples often 

coincide with those of WWF and other conservation 

organizations, especially when dealing with 

environmental threats and the underlying causes 

of biodiversity loss. 

Apart from the arena of international environmental 

policy, an array of multinational organizations 

has incorporated policy provisions on 

indigenous peoples into their program operations.


Particularly prominent are the World Bank, 

whose Operational Directive on Indigenous 

Peoples is well known and frequently cited, and 

the Inter-American Development Bank (IDB) and 

the Asian Development Bank (ADB), which have 

similar policies. 

Many governments of developed countries have 

also adopted policies to ensure that their international 

assistance programs for development and 

the environment respect indigenous rights. 

Among others, Denmark, the Netherlands, Spain, 

and more recently the European Union have all 

specifically addressed the issue of local community 

rights and interests in undertaking development 

and environmental actions with indigenous 

groups. This convergence in policy is an important 

strand in the growing partnership between 

WWF and the aid agencies of these governments 

on conservation projects worldwide. 

Finally, a broad spectrum of international conservation 

organizations has adopted policies geared 

toward indigenous peoples. WWF adopted its 

Statement of Principles on Indigenous Peoples 

and Conservation (see Annex) in May 1996. In 

October 1996, the World Conservation Congress 

of the World Conservation Union (IUCN) passed 

a set of eight resolutions related to indigenous 

peoples. IUCN recognized them as repositories 

of traditional knowledge about biodiversity, and 

noted the role they play in protected areas, 

forests, marine and coastal habitats, and a host of 

other environmental areas. Nongovernmental 

organizations (NGOs) dealing with forest issues, 

such as the World Rainforest Movement and the 

Rainforest Foundation, have made issues affecting 

indigenous peoples a fundamental component 

of their strategy. Although some environmental 

groups like The Nature Conservancy, Friends of 

the Earth, and Conservation International do not 

have specific policies or programs dealing with 

indigenous peoples, they have carried out activities 

in coordination with indigenous organizations 

on many occasions and have expressed 

interest in indigenous issues. 

Perhaps the most notable exception to this policy 

convergence in the international conservation 

movement is Greenpeace, which, in spite of 

internal discussions and pressure, has declared 

indigenous peoples outside its orbit of priorities. 

II. WWF’s Approach to Working 

with Indigenous Peoples 

WWF seeks to partner with indigenous groups 

when conservation of their land and resources 

coincides with its conservation priorities. 

WWF’s partnerships with indigenous peoples are 

based on recognition of their legitimate rights 

and interests. These two affirmations are the cornerstones 

of WWF’s indigenous peoples policy, 

which includes a set of principles to guide the 

formation of partnerships. This section discusses 

the principles, and the next section addresses the 

programmatic guides to partnership. 

2.1 Achieving WWF’s Conservation Mission 

WWF’s guiding philosophy is that the Earth’s 

natural systems, resources, and life forms 

should be conserved for their intrinsic value and 

for the benefit of future generations. WWF’s 

commitment to collaborating with indigenous 

peoples to achieve conservation is firm, but not 

unconditional. As stated in WWF’s indigenous 

peoples policy: 

WWF may choose not to support, and 

may actively oppose, activities it judges 

unsustainable from the standpoint of 

species or ecosystems… even if such 

activities are carried out by indigenous 

peoples. WWF seeks out partnerships 

with local communities, grassroots 

groups, nongovernmental organizations, 

and other groups, including indigenous 

communities and indigenous peoples’ 

organizations, that share WWF’s commitment 

to the conservation of biodiversity, 

sustainable use of resources, and pollution 

prevention. 

This echoes Article 10(c) of the Convention on 

Biological Diversity, which requires parties to 

“protect and encourage customary use of biological 

resources in accordance with traditional cultural 

practices that are compatible with 

conservation or sustainable use requirements.” 

This means that traditional systems for environmental 

management and for the use of biological 

resources should be supported by conservation 

organizations as long as those systems contribute 

to the conservation and sustainable use of biodiversity. 

Clearly those systems are more likely to 

remain sustainable as circumstances change if


Box 1 AGENDA 21 - CHAPTER 26: Recognizing and Strengthening the Role of 

Indigenous People and Their Communities 

Objectives 

26.3 In full partnership with indigenous people and their communities, Governments and, where 

appropriate, intergovernmental organizations should aim at fulfilling the following objectives: 

(a) Establishment of a process to empower indigenous people and their communities through 

measures that include: 

(i) Adoption or strengthening of appropriate policies and/or legal instruments at 

the national level; 

(ii) Recognition that the lands of indigenous people and their communities should 

be protected from activities that are environmentally unsound or that the indigenous 

people concerned consider to be socially and culturally inappropriate; 

(iii) Recognition of their values, traditional knowledge and resource management 

practices with a view to promoting environmentally sound and sustainable 

development; 

(iv) Recognition that traditional and direct dependence on renewable resources and 

ecosystems, including sustainable harvesting, continues to be essential to the 

cultural, economic and physical well-being of indigenous people and their 

communities; 

(v) Development and strengthening of national dispute-resolution arrangements in 

relation to settlement of land and resource-management concerns; 

(vi) Support for alternative environmentally sound means of production to ensure a 

range of choices on how to improve their quality of life so that they effectively 

participate in sustainable development; 

(vii) Enhancement of capacity-building for indigenous communities, based on the 

adaptation and exchange of traditional experience, knowledge and resourcemanagement 

practices, to ensure their sustainable development; 

(b) Establishment, where appropriate, of arrangements to strengthen the active participation of 

indigenous people and their communities in the national formulation of policies, laws and programmes 

relating to resource management and other development processes that may affect 

them, and their initiation of proposals for such policies and programmes; 

(c) Involvement of indigenous people and their communities at the national and local levels in 

resource management and conservation strategies and other relevant programmes established to 

support and review sustainable development strategies, such as those suggested in other programme 

areas of Agenda 21. 

Source: UNCED 1992.


indigenous peoples and local communities participate 

in determining the criteria for measuring sustainability. 

If they understand the reasons for 

changing behaviors, they are more likely to make 

the changes. 

There is no blueprint for working with indigenous 

peoples. Each situation is different, not 

only culturally but socially, politically, economically, 

and geographically. While WWF’s 

involvement is based on a clear set of principles, 

a solid understanding of the links between biological 

and cultural diversity, and a genuine 

appreciation for indigenous peoples’ contribution 

to biodiversity conservation, its operational 

approach should be sensitive and flexible in order 

to maximize the input of its partners. 

2.2 Why Human Rights and 

Self-Determination Should Matter 

to Conservationists 

Indigenous organizations repeatedly and forcefully 

insist that development and the environment 

must be approached from a human-rights perspective. 

The conservation movement has often 

responded that human rights are beyond its mission 

and mandate. Increasingly the difference 

between these two viewpoints is narrowing. 

Environmental human rights—the right of present 

and future generations to enjoy a healthy life in a 

healthy environment—are implicitly at the heart of 

the environmental agenda, and will become more 

explicitly so in the future. Environmental human 

rights are linked to the right to a decent quality of 

life and to other related rights recognized in the 

International Covenant on Economic, Social, and 

Cultural Rights. WWF and other conservation 

organizations recognize that indigenous groups 

cannot be expected to commit themselves to conservation 

if their livelihoods are in peril from lack 

of secure tenure to land and resources. Indeed, it is 

the strength of their claim to the land, coupled with 

long histories of managing it wisely, that make 

them attractive potential partners for environmental 

stewardship. They cannot play this role under conditions 

of political oppression and marginalization. 

The more people’s basic needs are met and their 

rights respected, the more they will be willing and 

able to engage in biodiversity conservation because 

they understand it is in their own interest to do so. 

For indigenous peoples, the question of human 

rights is bound up with the struggle for selfdetermination, 

which involves control of traditional 

resources and cultural autonomy within 

existing nation states. WWF acknowledges 

indigenous peoples’ right to self-determination, 

and has built its own policies on it. When 

indigenous peoples define themselves as distinct 

nations and seek political autonomy, WWF 

respects their efforts to negotiate their status with 

governments, but does not consider this to be an 

issue on which it must take sides. 

III. Key Program Issues for 


Collaboration with indigenous peoples falls 

under several programmatic areas. This section 

explores six of them: 1) participation and prior 

informed consent; 2) protected areas; 3) traditional 

ecological knowledge and management 

practices; 4) alternative economic options and 

benefit sharing; 5) mitigation of environmental 

impacts; and 6) conservation capacity-building. 

Many of these issues are discussed in more detail 

in the case studies that follow. 

3.1 Prior Informed Consent 

Prior informed consent (PIC) is a fundamental 

principle for indigenous collaboration with outside 

organizations and the basis for protecting all 

other rights. PIC requires outsiders proposing 

any action to fully inform indigenous groups of 

the reasons for the activity, how it will be implemented 

in detail, the potential risks involved, and 

how this activity realistically can be expected to 

affect other aspects of community life in the short 

and long terms. If the indigenous community 

withholds its consent, no activities can begin, and 

activities already under way must be halted. The 

following types of activities relevant to biodiversity 

conservation should be subject to PIC: 

• the extraction of renewable or nonrenewable 

resources from indigenous communities 

or their territories; 

• the acquisition of knowledge from a person 

or people, whether for commercial or noncommercial 

purposes; and 

• all projects affecting indigenous communities, 

including infrastructure construction of 

roads and dams, and colonization schemes.


Since legal frameworks and tools to exercise and 

protect PIC are still in their infancy, WWF 

addresses this issue primarily at the local level 

through agreements with communities. This 

does not foreclose efforts to establish needed 

legal tools at national and other levels. 

3.2 Protected Areas 

The establishment of protected areas is a primary 

tool for conserving biodiversity around the 

world. Indigenous peoples inhabit nearly 20 percent 

of the world’s surface, or close to three 

times the total surface covered by protected 

areas. Of course, many of the world’s protected 

areas overlap with indigenous lands and territories. 

For example, in Latin America local populations, 

most of them indigenous, inhabit 86 

percent of protected areas (Amend 1992). 

The protected area model is presumed to be a 

creation of modern Western societies, dating 

back to the establishment of Yellowstone 

National Park in the United States in 1872. Yet 

there are similar models that are much older. For 

hundreds if not thousands of years, traditional 

societies have established “sacred” areas within 

the compass of their territorial lands and waters 

where human activities have been very limited 

and strictly regulated. This traditional concept of 

protected areas is alive and functioning in many 

parts of the world, although it generally lacks 

recognition and support from modern states and 

societies. Sadly, despite their respect for nature, 

indigenous communities have been expelled from 

their traditional lands to create reserves and 

parks. The livelihoods and cultures of these 

communities have been severely disrupted, turning 

protected areas into an enemy rather than a 

guarantor of community survival. 

WWF has joined with the World Commission on 

Protected Areas (WCPA) to develop a new 

framework policy on indigenous/traditional peoples 

and protected areas. This policy promotes 

the concept of partnerships between indigenous 

communities and the public or private institutions 

responsible for administering a park or reserve 

when the local groups’ lands and resources fall 

within the boundaries of the protected area. The 

policy also supports indigenous peoples’ own 

actions to protect their territories. Within this 

framework, conservation groups are encouraged 

to support the growing number of comanagement 

arrangements between the state and indigenous 

peoples, and to work to extend recognition of 

indigenous protected areas as self-regulated parts 

of national protected-area systems. 

3.3 Traditional Ecological Knowledge 

Traditional knowledge is an important resource 

for development of strategies to conserve biodiversity. 

Generations of interaction with specific 

habitats and species can provide a long-term perspective 

on ecosystem dynamics. Anthropologists 

and other researchers have frequently documented 

how various traditional peoples have developed 

sophisticated classification systems, in many 

cases producing more complete taxonomies than 

those of Western science. Traditional knowledge 

is also a catalyst for cultural adaptation to environmental 

conditions. One of the great ironies 

facing many indigenous peoples is that scientific 

and commercial interest in their ecological knowledge 

and resource management practices is 

increasing while traditional knowledge systems 

are disappearing at an accelerating rate as globalization 

makes the world more biologically and 

culturally uniform. 

WWF has worked with indigenous peoples in 

several countries to protect and revitalize traditional 

knowledge. In Thailand, WWF supports 

the Karen people’s efforts to maintain and consolidate 

their cultural practices, and pays particular 

attention to strengthening knowledge of local 

ecosystems. The People and Plants Program 

implements various ethnobotany projects in Asia, 

Africa, and the Pacific to recuperate, protect, and 

revitalize traditional botanical knowledge, and to 

help local people conserve their plant resources. 

Traditional management practices also have much 

to offer to biodiversity conservation. Article 10(c) 

of the Convention on Biological Diversity 

requires recovery and support of these practices 

when they are “compatible with conservation or 

sustainable use requirements.” The assumption 

underlying this injunction is that these practices 

not only have specific local values but can be 

integrated into national efforts to enhance biodiversity 

conservation in a given country. 

Some of WWF’s work with indigenous groups 

supports that assumption. For instance, a study 

with indigenous communities in the Arctic 

showed that their use of wildlife was essentially


compatible with conservation objectives, and that 

external market forces have caused recent disruptions. 

Based on this analysis, and on working 

with local people, WWF developed guidelines 

for the sustainable use of wildlife in the region. 

Many of the concepts in the guidelines are applicable 

to other areas where communities are concerned 

that their wildlife is dwindling. 

Fortunately international environmental law 

increasingly recognizes, through agreements such 

as the Convention on Biological Diversity, that 

the knowledge, innovations, and practices of 

indigenous peoples and local communities are 

vital resources for preserving the genetic heritage 

of the planet. Systematic effort is needed to help 

revitalize and protect such knowledge in collaboration 

with concerned communities, with full 

respect for their intellectual property rights. 

Indigenous peoples should have the opportunity 

to benefit fairly from the use and application of 

their knowledge, and this will serve our common 

interest by strengthening their ability and commitment 

to act as environmental stewards. 

3.4 Benefit Sharing and Economic 

Alternatives 

Long-term conservation of indigenous peoples’ 

territories and resources requires that communities 

directly and equitably benefit from the use of 

their land. In most cases, conservation implies 

trade-offs that have direct or indirect impact on 

local livelihoods. Indigenous and traditional people 

should not be expected to participate in conservation 

activities that do not contribute to 

improving their quality of life. Ensuring an 

improved quality of life often involves the creation 

of economic alternatives that promote sustainable 

resource use and generate income to 

counterbalance market pressures to overexploit 

resources for short-term gain. Care must also be 

taken that benefits are broadly distributed to 

avoid fragmenting the community and undermining 

its ability to manage its resource base wisely. 

3.5 Mitigation of Environmental Impacts 

Indigenous groups and conservation organizations 

are both concerned about the destructive 

impact that ill-conceived logging, mining, oil 

exploitation, and other development efforts can 

have on the environment. These issues have converted 

many indigenous groups into activists 

fighting to defend the integrity of their lands and 

ecosystems. Through coordinated and mutually 

supportive work, conservationists and indigenous 

peoples can mitigate these threats and promote 

practices that lead to sustainable development. 

Article 7 of ILO Convention 169 requires governments 

to carry out environmental impact assessments 

(EIAs) for any activities taking place on the 

lands and territories of indigenous peoples that 

could affect the quality of their environment and 

resource bases. To help ensure that this proscription 

is followed, WWF has pledged to help monitor 

development of EIAs for external interventions 

in any indigenous territory where WWF works so 

that affected communities are fully informed, 

allowed to voice their concerns, and able to defend 

their rights. WWF, in cooperation with concerned 

indigenous organizations, will also urge governments 

to put in place all necessary measures to 

prevent and control environmental impacts in 

those lands and territories, and will help local 

organizations strengthen their own capacity for 

prevention, control, monitoring, and mitigation. 

3.6 Building Conservation Capacity 

Building the conservation capacity of community 

organizations is not limited to the circumstances 

described in the preceding section. It is a fundamental 

tool for enabling indigenous and other 

communities to plan and implement conservation 

activities, and it is a bedrock of WWF’s conservation 

strategy. Capacity building covers a wide 

range of activities—from training to improve the 

leadership, accounting, and administrative skills 

of indigenous organizations, to providing technical 

assistance, access to information, and support 

for networking. Assistance should take place in 

the context of respect for self-governing institutions 

and customary law, and should promote a 

social environment that is conducive to real 

democracy—one in which marginalized peoples 

have a say in all matters that affect their wellbeing. 

Indigenous conservation capacity will be 

enhanced through the promotion of macro-policies 

like the decentralization of natural resource 

management, and capacity building at the local 

and regional levels will make states more likely 

to devolve responsibility. 

One aspect of capacity building deserves special 

attention. Environmental problems affecting 

indigenous peoples’ lands and resources are often


linked to conflicts of interest among a variety of 

stakeholders, including governments, businesses, 

and other local groups. In these situations, 

indigenous peoples frequently lack the power to 

be included in the decision-making process from 

the beginning, and lack access to the information, 

expertise, and funding needed to define, articulate, 

and defend their interests through public 

advocacy campaigns. Conservation groups can 

play a role in providing support to indigenous 

peoples to help even the playing field. In doing 

so, it is important to partner with other organizations 

experienced in environmental brokerage to 

ensure that the best possible expertise is brought 

to bear in finding fair solutions from both the 

environmental and social points of view. The 

objective is twofold: to make sure that indigenous 

peoples are recognized as legitimate stakeholders 

and to help them develop the institutional 

capacity to become effective stakeholders able to 

exercise their rights and responsibilities as stewards 

of their lands and resources. 

Endnotes 

1. According to Article 1 of the Convention, it 

“applies to (a) tribal peoples in independent countries 

whose social, cultural and economic conditions 

distinguish them from other sections of the 

national community, and whose status is regulated 

wholly or in partially by their own customs or traditions 

or by special laws or regulations; (b) peoples 

in independent countries who are regarded as 

indigenous on account of their descent from the 

populations which inhabited the country, or a geographical 

region to which the country belongs, at 

the time of conquest or colonisation or the establishment 

of present state boundaries and who, 

irrespective of their legal status, retain some or all 

of their own social, economic, cultural and political 

institutions.” It adds that “self-identification 

as indigenous or tribal shall be regarded as a fundamental 

criterion for determining the groups to 

which the provisions of this Convention apply.” 

2. The exceptions are represented by the following 

ecoregions: Caribbean (WWF ecoregion #s 5, 

65), where the indigenous populations were 

wiped out soon after the arrival of the Spaniards; 

coastal Venezuela (#4), where no ethnolinguistic 

groups appear to fall within the boundaries of the 

ecoregion; Galápagos Islands (#123), where 

human settlements were only established in 

1912; and Fynbos (#134), where the situation 

corresponds to that in coastal Venezuela. 

3. The number of languages in the world (excluding 

for present purposes, sign languages, creoles, 

pidgins, and Romany/“gypsy” languages) can be 

calculated as 6,611 of the 6,703 cited in 

Ethnologue. As table 3 shows, however, there are 

more than 6,611 ethnolinguistic groups. 

Ethnologue lists 256 groups who speak the same 

language as one or more of their neighbors, but differentiate 

themselves by the use of distinct ethnic 

names. Since the present mapping project focuses 

on ethnolinguistic groups, not just languages, and 

thus takes ethnic criteria into account, these 256 

ethnic groups were included in calculating the 

world’s total number of EGs (6,611 + 256 = 

6,867). For the same reason, the world total also 

includes ethnic groups who still maintain their distinct 

culture even though their ancestral language 

is, or is thought to be, extinct. As far as possible, 

duplicate entries of EGs across ecoregions were 

eliminated from the calculations.


References 

Amend, Stephan and Thora. 1992. Espacios sin 

Habitantes? Parques Nacionales de America del 

Sur. Caracas: The World Conservation Union 

(IUCN) and Editorial Nueva Sociedad. 

Durning, A. T. 1992. Guardians of the Land: 

Indigenous Peoples and the Health of the Earth. 

Worldwatch Paper No. 112. Washington, D.C.: 

Worldwatch Intstitute. 

Four Directions Council. 1996. Forests, 

Indigenous Peoples and Biodiversity: 

Contribution of the Four Directions Council. 

Draft paper submitted to the Secretariat of the 

Convention on Biodiversity, Montreal. 

Gomez-Pompa, A., and A. Kaus. 1992. Taming 

the Wilderness Myth. BioScience 42:271–279. 

Hitchcock, Robert K. 1994. Endangered 

Peoples: Indigenous Rights and the Environment. 

Colorado Journal of International Environmental 

Law and Policy 5 (1):11. 

International Labour Organization (ILO). 1998. 

Indigenous and Tribal Peoples: A Guide to ILO 

Convention No. 169. Geneva: ILO. 

IUCN–Inter-Commission Task Force on 

Indigenous Peoples. 1997. Indigenous Peoples 

and Sustainability, Cases and Actions. Utrecht: 

International Books and IUCN-The World 

Conservation Union. 

Maffi, Luisa. 1999. Language and Diversity. In 

Cultural and Spiritual Values of Biodiversity, 

Darrell Posey, ed. London: Intermediate 

Technology Publications Ltd./UNEP, 1999. 

United Nations Conference on Environment and 

Development (UNCED). 1992. Agenda 21. Rio 

de Janeiro: UNCED.

PART TWO: CASE STUDIES

CHAPTER 3 

Indigenous Federations and the Market: 

The Runa of Napo, Ecuador 

Dominique Irvine 1 

I. Introduction 

Indigenous peoples throughout the Amazon 

Basin are under duress as they confront challenges 

that are transforming their lives and the 

landscapes they inhabit. New roads—though 

often muddy and potholed—have been carved 

into the remote rain forests they call home and 

have opened access to outsiders. Even as communities 

reorganize to ward off incursion by 

settlers and uncontrolled extraction of 

resources, changes have been set in motion that 

tie indigenous peoples more tightly to market 

economies. As a result they face not only 

external pressure but the internal challenge of 

developing new ways to manage, without 

destroying or depleting, the resource base they 

have conserved for millennia. 

The struggle to develop new land-use models that 

combine conservation and economic goals is 

urgent because indigenous peoples’ control over 

their territories is in peril. Threats come not only 

from lumber trucks, oil rigs, and encroaching 

colonization, but also from environmental 

reserves that appropriate traditional lands but 

exclude local inhabitants from reserve oversight. 

This case study explores how one group of 

indigenous people in Ecuador developed new 

tools to meet these challenges. 

Their experience has implications for the entire 

upper Amazon, where rivers tumble precipitously 

from the Andes to the lowlands of Colombia, 

Ecuador, Peru, Bolivia, and western Brazil, and 

where development pressures have accelerated in 

the past 25 years. In Ecuador, oil discoveries in 

the late 1960s led to road and infrastructure 

development that paved the way for lumber interests, 

colonization by small-scale subsistence 

farmers, and establishment of large African oil 

palm plantations. Newcomers arrived with the 

notion that the land was unoccupied and unused.

22 The Runa in Ecuador 

In fact, the band of rain forest in the headwaters 

of the Amazon River in Colombia, Ecuador, 

Peru, and Bolivia shelters the largest indigenous 

populations in the entire basin. Surprisingly, the 

estimated 104,000 indigenous people of the 

Ecuadorian Amazon (see table 3.1), which covers 

only 138,000 square kilometers, are nearly as 

numerous as the indigenous population of the 

entire Brazilian Amazon, which has 45 times the 

land area. 2 Furthermore, 75 percent of the 

Ecuadorian Amazon is claimed by its native peoples, 

while only 21 percent of the Brazilian 

Amazon is similarly claimed. 

This relative density is among the factors that 

make the region a promising place to test the 

idea that indigenous peoples can play a vital role 

in continuing to preserve biodiversity. That idea 

gathered steam in 1988, when a diverse conglomeration 

of interests formed to protect habitat 

around Sumaco Volcano and the adjacent Galeras 

Ridge in northeastern Ecuador. This area has 

historically been a significant center of settlement 

by Runa Indians, who have organized several 

federations of communities to defend their 

interests throughout the region (see map 3.1). 

The local federation around Sumaco, known as 

FOIN, had been working for nearly a decade 

with the human rights organization Cultural 

Survival (CS) and others to help member communities 

strengthen their organization and gain 

titles to ancestral territories before a major new 

road crossed the Andes to connect oil-rich Napo 

Province with western ports. State and international 

efforts to finish that link became urgent 

after a devastating earthquake in 1987, but international 

aid was tied to local efforts to offset 

anticipated side effects on the Sumaco area, with 

its unique flora and fauna. 

The diverse group of actors involved in this 

process had interests that only partially overlapped. 

Many of the fault lines separating them 

were initially invisible. FOIN, for instance, 

viewed donor investments in PUMAREN (the 

Project for the Use and Management of Natural 

Resources), which is the focus of this case study, 

in the context of solidifying FOIN’s ongoing 

regional land-titling and training programs. 3 

FOIN hoped to develop a sustainable model for 

extracting renewable resources that member 

communities could use as an alternative to the 

cattle herding and cash monocropping that had 

proved socially divisive and environmentally 

destructive. By strengthening services to its 

members, FOIN hoped to increase membership 

cohesion, attract new communities into the fold, 

and impress the government and the international 

community. The model developed by 

PUMAREN focused over time on a community 

forest initiative in three Sumaco communities. 

Participating communities saw the project 

through a narrower lens: not as a model for others, 

but as a tool to secure local tenure rights and 

generate income for local families. 

To most donors—including the U.S. Agency for 

International Development (USAID) and World 

Wildlife Fund–US (WWF)—FOIN’s role was 

downplayed and PUMAREN and the forestry 

enterprise were viewed primarily as a community-based 

effort in integrated conservation and 

development that would reduce deforestation in a 

large and important tract of endangered wilderness. 

To the Ecuadorian Ministry of Agriculture, 

PUMAREN’s forestry project was a cost-effective 

way to limit encroachment and resource loss 

in a region where the government lacked effective 

control on the ground. 

Embedded in these separate points of view are 

two contrasting visions of how to achieve conservation 

goals. To the Ecuadorian government and 

to some environmental organizations, the most 

effective way to halt deforestation and safeguard 

biodiversity was the protected-area model, 

Table 3.1 Indigenous Population of the 

Ecuadorian Amazon 

(estimated numbers) 

Quichua (Runa) 60,000 

Shuar 40,000 

Achuar 2,400 

Huaorani 600 

Siona-Secoya 600 

Cofan 460 

Total 104,060 

Source: CONAIE (1989)

The Runa in Ecuador 23 

Loreto 

Chonta 

Cocha 

Amazonas 

Runa land (titled or demarcated) 

Colonist land (titled or demarcated) 

Protected Areas 

(national park/ecological reserve) 

River 

Napo 

Sumaco Volcano 

77°30' 

77°30' 

Map 3.1 Land Tenure around Sumaco Volcano in 1997: 

Indigenous and Colonist Lands and Protected Areas 

Cosanga 

Sumaco National Park 

(Sumaco) 

North 

Antisana 

Ecological 

Reserve 

Ecuador 

Quito 

Sumaco 

Volcano 

Cuenca 

Huahua 

Sumaco 

Loja 

Hollí n-Loreto Road 

Antisana 

Ecological 

Reserve 

Sumaco 

National 

Park 

(Galeras) 

Cotundo 

Tena 

1°00' 

Map by D. Irvine/Inset map from Cartesia Software


in which the state appropriates a core zone ringed 

by local communities that form a buffer zone as a 

first line of defense. 

In contrast, the indigenous organizations saw 

themselves as defending ancestral territory of 

which they form an ongoing part. The distinction 

between these two approaches and their long-term 

implications were not recognized fully by local 

communities or by most donors. 

The confusion of long- and short-term conservation 

and development objectives and the difficulty 

in getting such a diverse group of interests 

to work together to implement a concrete plan of 

action would play a role in how the project 

evolved. The complexity of the undertaking 

might have been clearer to its framers had they 

better understood the project’s cultural, environmental, 

legal, and political contexts. 

II. Clarifying the Context 

2.1 Indigenous Society and Culture 

Quichua-speaking peoples are the dominant 

indigenous group in the northern Ecuadorian 

Amazon. An estimated 60,000 live in the 

provinces of Napo, Sucumbios, Orellana, and 

Pastaza. 4 Sizable numbers also live across the 

border in the rain forests of neighboring Peru and 

Colombia. Although they now make up about 40 

percent of the total Amazonian population, they 

claim about 75 percent of the land area as their 

territory, enough to continue living at the same 

relatively low densities using traditional management 

practices described in Section 2.3. 

Calling themselves Runa, or the People, they are 

often referred to as Lowland Quichua. Both 

names are somewhat misleading. Although the 

Quichua language is the native tongue of many 

Andean highlanders in Ecuador, Peru, and Bolivia, 

strong evidence suggests that the Runa are unrelated 

to these groups. Moreover, beneath their 

shared language and economic system, significant 

internal cultural diversity also exists among lowland 

communities that belies surface similarities. 

Both linguistic and historical data indicate that the 

Runa of the Amazon are an amalgam forged from 

a multitude of cultures that existed in the region 

prior to the sixteenth-century Spanish Conquest. 

The exact number of distinct peoples is unknown, 

but early Spanish expeditions chronicled those they 

encountered. Many groups were described, and 

they spoke a multiplicity of mutually unintelligible 

languages. Some were small and dispersed; others 

numerous and more densely populated. Some 

wore painted garments, others went naked, still 

others were adorned with large gold plates. 

The Spanish Crown divided the upper Amazon 

into encomiendas and awarded these royal concessions 

to Spaniards entitled to collect tribute 

that depended on the mix of local resources or 

skills. Some villages were commanded to pan 

for gold; some to weave cotton cloth; and some 

to extract fiber from pita, a forest plant related to 

pineapple (Aechmea magdalenae). Archives 

record that the “King’s men” were cruel in this 

region even by Spanish standards—suicide rates 

rose, and some women reportedly killed their 

newborns rather than raise them under such desperate 

conditions (Muratorio 1991, Irvine 1987). 

Organized resistance was recurrent, each attempt 

brutally repressed. Populations plummeted further 

as smallpox epidemics swept through the 

area. Between 1577 and 1608, the number of 

indigenous people was reduced by almost 80 percent 

(Irvine 1987). 

During these violent times survivors of different 

ethnic groups either decided—or were obliged— 

to live in mission villages where Quichua, an 

Andean language, was a lingua franca. Spanish 

visitors during the 1600s and 1700s reported that 

villagers still spoke their native languages within 

their ethnic circles, while communicating with 

other villagers in Quichua. By about 1800, most 

inhabitants had lost their original languages and 

had forged a new Runa identity. 

That amalgam, however, was far from uniform. 

Each mission village was a crucible for the ethnic 

groups in its area. Today, the Runa recognize 

three main zones that reflect discrete cultural and 

linguistic blends. The southern part of their territory, 

in what is now Pastaza Province, is home to 

the Canelos Runa, who are descended from 

Shuar, Achuar, and Zaparo speakers. 5 The northern 

part, containing the Napo watershed, has two 

zones, corresponding roughly to elevation. The 

native languages of the Quichua speakers there 

are not fully documented, and may be lost forever. 

The watershed above 600 meters came to 

be inhabited by the Napo Runa, clustered around 

the mission towns of Archidona and Tena.


Lower elevations are recognized centers of the 

Loreto Runa, descended from mission towns 

around Loreto, Avila, and San José de Payamino. 

These three zones have distinct mythological traditions, 

and their elaborate ceramic heritages are 

readily distinguishable in form and design. The 

detailed and colorful decorations on chicha pots 

and bowls made by Runa women in Pastaza contrast 

with the simple but elegant, unpainted 

ceramics and modestly painted gourds crafted for 

the same beverage by women in Napo near 

Loreto. Runa from each area speak dialects that 

vary significantly in grammar and vocabulary, 

linguistic differences widely recognized by the 

Runa themselves as markers of identity. 

Despite these cultural differences, Runa subsistence 

economies share many similarities across 

ecological zones, and probably have long done 

so. Principal crops of manioc and plantain are 

interplanted with minor crops and fruit trees in 

small clearings, which are then allowed to revert 

to forest after one or two harvests. Largely 

unknown to outsiders, the upper Amazon has 

been identified as a major domestication center 

for harvestable crops from a variety of rain forest 

trees, including the peach palm (Bactris 

gasipaes), which must be planted to reproduce. 

Hunting, fishing, and the collection of native 

plant products provide a varied diet, and all other 

necessities of life—medicines, construction 

materials, fibers, firewood. 

The Napo Runa are much more densely populated 

than other Runa groups in the province. 

Roads entered their territory in the 1960s, and 

development pressure hit them earlier and harder 

than populations to the east. At first they formed 

new villages in old hunting territories; then they 

began to migrate to unsettled areas within Loreto 

Runa territory and farther downriver all the way 

to the Peruvian frontier. As hacienda owners, 

peasant colonists, and the church swallowed bits 

and chunks of their home territory, displaced 

Napo Runa families and the young seeking land 

that was not overcrowded spilled north and east, 

forming an indigenous colonization front. At 

times colonization was a result of conscious 

policy by indigenous organizations. Other times, 

families spontaneously resettled. With populations 

on the move, intermarriages of Runa from 

different cultural zones increased. 

Boundaries, once distinct, have blurred. The area 

around Sumaco marks a recent border shift 

between the Napo and Loreto Runa. Before the 

Hollín–Loreto leg of the new trans-Andean road 

was built, the Napo Runa hunted west of the 

Pingullo River, and the Loreto Runa stayed to the 

east. Now Runa villages along the road are often 

a mix of the two groups, and the three villages 

involved in the PUMAREN project reflect this 

diverse background. 

2.2 Organizing to Deal with Outsiders 

Other changes to Runa life have accompanied 

contested land claims and shifts in settlement. 

People have reworked how they organize themselves 

as communities and their relation to the 

outside world. One of the foremost developments 

has been the growth of regional indigenous 

organizations since 1964, when the first 

major threat to traditional land tenure materialized. 

Following the Agrarian Reform and 

Colonization Law enacted that year, peasant 

families began to spill into the western fringe of 

the Amazon headwaters from Napo in the north to 

Morona–Santiago in the south, where the Shuar 

reacted by organizing the first federation with 

support from Salesian missionaries (Rudel 1993). 

Petroleum development intensified the incursions 

and extended the pressure to organize among 

Runa deep in the interior. Exploration in the late 

1960s hit pay dirt in Napo Province. By the time 

Ecuador joined OPEC in 1973, the landscape 

around Texaco’s concession—between Lago 

Agrio and Coca—had been transformed. Roads 

to bring drilling equipment in and to service the 

new pipeline that snaked like a giant anaconda 

from the Amazon to the coast also opened the 

way for peasants hungry for land and jobs. Statesponsored 

and spontaneous colonization poured 

into the area at the fastest rate in the world. 

Settlers cleared farms in long swaths as many as 

five rows back from the dusty roads. As roads 

proliferated, deforestation relentlessly kept pace. 

North and south, dispersed communities were 

bewildered to learn that the newly altered and 

unfamiliar framework of Ecuadorian law affected 

their rights, and they slowly developed responses. 

Lands held under customary tenure for centuries 

were suddenly subject to a maze of rules and regulations 

that voided traditional rights and imposed 

demands that had to be met to prove ownership.


The federations that formed to confront this situation 

were headquartered in the towns hardest 

hit—from Tena to Coca to Lago Agrio. Because 

the young men who led these federations were 

accustomed to town life, conversant in the ways 

of white people, and schooled in reading and 

writing, the institutional structures they created 

did not spring from existing indigenous social 

organizations. What emerged was a new kind of 

intermediary between subsistence-level, initially 

illiterate communities and government ministries. 

Federations were based on democratic Western 

models in which communities elected the leadership—presidents, 

vice presidents, secretaries, and 

treasurers. As federations took root, they 

branched out from working on land rights to a 

variety of other problems ranging from agriculture 

to health to bilingual education. Often 

dependent on international foundation funding, 

the federations resembled a cross between a 

grass-roots membership organization and a nonprofit 

nongovernmental organization (NGO). 

Eventually representative federations formed in 

all the Amazonian provinces in Ecuador. As they 

gained strength and experience, they began to 

organize tertiary institutions to deal with the 

political problems of all indigenous people in the 

region. In 1980 an Amazonian confederation, 

CONFENIAE, was formed. Allies were also 

sought at the national and international levels. 

In late 1980, CONFENIAE joined with 

ECUARUNARI, a highland Indian organization, 

to coordinate activities through a national indigenous 

council called CONACNIE. By 1994 this 

had evolved into a confederation of Ecuadorian 

Indian organizations called CONAIE, which now 

serves as a national umbrella organization. 

Realizing that the problems of Amazonian 

Indians spilled across national borders, CONFE- 

NIAE also met with indigenous organizations in 

the neighboring lowlands of Peru, Colombia, 

Bolivia, and Brazil. COICA, the Confederation 

of Indigenous Organizations of the Amazon 

Basin, was established in 1984. 

The multitiered structure of organizations (see 

figure 3.1) led to unprecedented interchange 

among indigenous groups. A new indigenous 

consciousness and identity emerged that transformed 

the debate between local communities and 

the Ecuadorian state. This evolving consciousness 

has focused on two principal concepts—territoriality 

and self-determination—that call for 

legal titling of ancestral lands and political, cultural, 

and economic control over them. These 

demands, initially considered seditious, are 

becoming more broadly accepted as indigenous 

organizations become a major force in Ecuadorian 

political life and receive surprising public 

support. Between 1990 and 1997, confederations 

coordinated four major protest campaigns that 

halted national activity for as much as a week. 6 

One of these, a march from the rain forests of 

Pastaza Province to the Presidential Palace in 

Quito in 1992, was a brilliant display of public 

relations and grass-roots involvement. The march 

leaders knew that the impending United Nations 

Conference on the Environment and Development 

(UNCED) would cast an international spotlight 

on what states were doing to support indigenous 

people and conservation, and that Ecuador’s government 

would strive to appear “green.” As a 

result, protesters obtained from the president a 

promise to title 75 percent of the province as 

indigenous lands. Now indigenous organizations 

also have entered the electoral arena and have 

won numerous seats in the legislature. A former 

president of CONAIE became Ecuador’s first 

indigenous senator. 

2.3 Ecology and Traditional Management, 

or Agroforestry 

The Runa in Ecuador occupy a large though nolonger-contiguous 

territory that straddles the 

equator and cuts a transect from the east-Andean 

foothills to the borders with Peru and Colombia. 

It includes habitats that range from montane to 

lowland moist forest, and that represent ecoregions 

considered to be globally outstanding. 7 

According to Neill (1999) these upper-Amazon 

forests have as many as 300 species per hectare, 

the highest ratio in the world. 

Runa lands in Napo Province descend from over 

1,200 meters on the slopes of Sumaco Volcano in 

the foothills to about 250 meters at the Peruvian 

border. Communities line the banks of the Napo 

River from its source, where the Jatunyacu and 

Anzu rivers merge, all the way to Ecuador’s eastern 

rim. Runa also live along two large tributaries 

of the Napo—the Coca and Payamino 

rivers—and many of the smaller streams that 

drain these watersheds and flow from Sumaco.


Figure 3.1 Indigenous Organizations of the Ecuadorian Amazon 

CONAIE 

CONFENIAE 

(Amazon) 

Sierra 

(Not Listed) 

Coast 

(Not Listed) 

Shuar Achuar Quichua Cofan Siona-Secoya Huao 

FISCH FIPSE FINAE FOIN FCUNAE FOISE OPIP AIEPRA OINCE ACOINCO OISE ONISE ONHAE 

CONAIE Confederación de Nacionalidades 

Indígenas del Ecuador 

CONFENIAE Confederación de Nacionalidades 

Indígenas de la Amazonia Ecuatoriana 

FICSH Federación Indígena de Centros Shuar 

(Shuar) 

FIPSE Federación Independiente del Pueblo 

Shuar Ecuatoriano (Shuar) 

FINAE Federación Interprovincial de la 

Nacionalidad Achuar del Ecuador (Achuar) 

FOIN Federación de Organizaciones Indígenas 

de Napo (Runa) 

FCUNAE Federación de Comunidades, Union de 

Nativos de la Amazonia Ecuatoriana (Runa) 

FOISE Federación de Organizaciones Indígenas 

Sucumbios-Ecuador (Runa) (formerly Jatun 

Comuna Aguarico) 

OPIP 

AIEPRA 

OINCE 

ACOINCO 

OISE 

ONISE 

ONHAE 

Organización de Pueblos Indígenas de 

Pastaza (Runa) 

Asociación de Indígenas Evangélicos 

Pastaza Región Amazónica (Runa) 

Organización Indígena Nacional Cofan del 

Ecuador (Cofan) 

Asociación de Comunas Indígenas Cofanes 

(Cofan) 

Organización Indígena Secoya del Ecuador 

(Secoya) 

Organización de la Nacionalidad Indígena 

Siona del Ecuador (Siona) 

Organización de Nacionalidad Huarani de 

la Amazonia Ecuatoriana (Huao) 

Source: Compiled by D. Irvine. 

The total area occupied by Runa has increased 

during the 30 years since discovery of oil, 

although traditional homelands have shrunk as 

outsiders have moved in. Migration also has 

brought change in how the Runa interact with 

habitat. In their traditional settlement areas near 

Sumaco, the Runa cleared gardens along relatively 

flat hilltops and hunted more frequently than 

fished. Moving eastward, migrants have adapted 

their livelihoods to riverine habitats. They build 

their houses near medium to large rivers where 

they increasingly farm alluvial soils to grow subsistence 

and cash crops. Fishing along the banks 

provides the principal source of protein. 

PUMAREN, the focus of this case study, 

involves an area of traditional forest management. 

Sumaco is one of the smallest of the 

Andean volcanoes, with a peak of 3,828 meters. 

Its symmetrical cone dominates the horizon in 

the surrounding lowland forests as far away as 

the provincial capital of Tena. The volcano’s 

slopes encompass significant ecosystem diversity, 

but the area of human settlement ranges only 

from 320 to about 1,200 meters. The mountaintop, 

which contains the only untouched paramo 

left in Ecuador, remains isolated. 

Forests on the flanks of Sumaco and the 

adjoining Galeras Ridge (where the PUMAREN 

project is centered) are not only diverse, but 

unusually rich in endemic species—that is, plants 

or animals unique to this restricted area. The 

WWF/IUCN Centres for Plant Diversity Project


has identified the Gran Sumaco and Upper Napo 

River region as one of 46 top-priority sites in 

South America for plant conservation (Harcourt 

and Sayer 1996, 32–33). According to BirdLife 

International the region of the Napo and upper 

Amazon lowlands is an Endemic Bird Area, one 

of 60 identified in South America (Harcourt and 

Sayer 1996, 39). 

In part, the biota diversity is due to the numerous 

habitat types concentrated in a small area. 8 Some 

differences result from soil variations. Although 

soils throughout the area are young, without a 

developed structure, those in the western section 

are volcanic while the eastern soils have evolved 

from a sedimentary base. Studies by the Missouri 

Botanical Garden of the flora on the summit of 

the Cordillera de Galeras found endemic plant 

species that occur only on its limestone outcrops 

and soils and that do not appear at similar elevations 

on the nearby but volcanic rocks and soils of 

Sumaco (Neill 1999; Neill and Palacios 1997). 

The forests that cloak the volcano change dramatically 

in species and structure as rainfall rises and 

temperature decreases with altitude (Watson and 

Silva del Pozo 1989/90, 16–18). Annual rainfall 

varies from 3 to 4 meters per year at lower elevations, 

to 6 to 8 meters per year higher up. At altitudes 

above 600 meters, trees grow only 30 to 40 

meters tall, but their girth is often impressive, and 

many reach diameters of 1 meter. Trees in the laurel 

family (Lauraceae) as well as the palm Wettinia 

maynensis are common. Below 600 meters, forest 

canopy is noticeably taller, reaching 40 to 50 

meters, but the trees are less massive. These habitats 

share less than 20 percent of their species with 

the higher forest. The diverse lower forest has a 

thick understory and is characterized by an abundant 

and widespread palm known as Iriartea deltoidea. 

The Runa call it patihua, and consider it 

one of the most useful trees in the forest. They use 

the mature fronds for palm thatch and eat the 

unopened leaf shoots as palm heart. The trunk 

provides a very hard wood, ideal for home construction 

posts and flooring. Wedges are cut in the 

trunks to raise a species of edible palm larvae 

(Rhynchophorus palmarun) that is considered a 

delicacy. Even the spiny stilt roots become a grater 

to prepare plantains for soup. The palms are the 

object of indigenous forest management, which 

may account for their large numbers (Irvine 1989). 

Forest management by Runa peoples has shaped 

the landscape despite their relatively low population 

densities (about 1 person/km 2 over the whole 

territory). For centuries they have lived by alternating 

short-term crops, grown in agricultural 

fields, with resources collected from the managed 

secondary forest that regrows in their garden and 

from the mature forest that eventually follows—a 

system known as agroforestry. As people cut 

clearings and manage successional forests, they 

have a strong impact on what is easily misperceived 

by outsiders to be untouched wilderness 

(Irvine 1989). A typical family that clears one 

hectare of forest per year and allows it to regrow 

after planting one crop would cut a square kilometer 

per century. Estimated indigenous populations 

in Napo must have cleared significant upper 

Amazonian rain forest since the Conquest while 

preserving high biodiversity. 

This rate of human clearing, in fact, approximates 

the current rate at which these forests appear to 

turn over naturally. The upper Napo is considered 

one of the world’s most “dynamic” tropical 

forests. Its trees typically grow quickly and die 

young. One scientist estimates that the average 

life expectancy of a tree in this region that reaches 

adult size—10 centimeters dbh (diameter at breast 

height)—is only about 64 years (Neill 1999). 

He concludes that “the relatively high dynamism 

reported for forests in Amazonian Ecuador may 

explain the high frequency of canopy gaps and the 

relatively few large trees, as compared with other 

tropical forest regions such as the Guyana shield 

area and Borneo in southeast Asia.” 

Historically, Runa families have lived in houses 

dotted through the forest, and have cut small 

clearings to plant their basic crops—manioc, 

plantains, and peach palm. As crops grew, the 

Runa carefully and selectively weeded their gardens, 

protecting what was valuable. This management 

set the stage for the growth of a diverse 

fallow forest filled with useful species. Over 90 

percent of the species in these traditionally managed 

landscapes were known and used by the 

Runa. Supplying food, medicines, and building 

and craft materials, forests supported a healthy 

life for humans with little trading or market 

involvement. Indeed, managed areas were more 

diverse than the natural secondary forests in the 

region. Fallow forests also attracted certain


game animals that proliferated as they fed on the 

fruiting trees that people planted or protected 

(Irvine 1987). 

Evidence also suggests that, depending on usage 

customs, indigenous management affected some 

forest areas more than others. Lowland forests 

were probably preferred to higher ones since 

Runa gardens were generally cleared below elevations 

of 600 meters. The higher parts of 

Sumaco Volcano were seasonal hunting grounds 

for a variety of Runa communities. Small gardens 

were cleared there only occasionally, to 

supply food for people visiting their purina 

huasi, or small hunting houses. 

2.4 Shifts in Tenure, from Custom to Law 

Traditional Runa tenure relations provided the 

security and flexibility needed for sustainable 

management of rain forest resources by future 

generations. Large community territories 

afforded ample space for gardening and hunting. 

Community boundaries were not demarcated but 

were well known and recognized. Individuals 

within a community negotiated directly with their 

neighbors to obtain land for gardening and for 

access to hunting and fishing areas. Such usage 

rights were widely respected by other indigenous 

communities, and provided the inhabitants of 

each community with a degree of control over 

resource extraction by outsiders. Disputes were 

resolved internally. 

This customary system has been superseded by 

an evolving patchwork of Ecuadorian law. 

Ecuador’s native Amazonians must negotiate a 

maze of laws that fall into three categories: those 

specific to indigenous communities, those regulating 

tenure for agricultural lands, and those 

governing forest areas. Usufructuary rights and 

responsibilities vary by category. Resource 

rights are divided by the state and apportioned as 

it sees fit. For example, Ecuadorian law assigns 

subsoil sovereignty to the state. Concessions 

may be (and are) granted to companies to explore 

for and extract petroleum or mineral resources 

despite the wishes of the individual or group 

holding surface rights. Not only do applicable 

laws differ, depending on category, but so do the 

institutions that oversee land titling. 

Indigenous Land. Ecuador’s Law of Comunas, 

established in 1937, provided a legal framework 

for indigenous communities to keep control over 

resource use. Few communities in the Amazon 

lowlands knew about or took advantage of this 

provision, however, given the lack of state 

administrative presence, the complicated and 

expensive procedure for gaining title, and a functioning 

traditional system to regulate resource 

use. When oil exploitation opened the rain forest 

wide to other groups 35 years later, the window 

of opportunity had severely narrowed if not 

closed. Neither the state nor new settlers knew 

existing community boundaries, and neither 

understood nor respected indigenous systems of 

coordinating forest use. As the Runa scrambled 

to understand Ecuadorian rules, they found that 

the legal landscape had changed. Many, often 

contradictory, laws appropriated their territory 

and ceded areas to colonists for agriculture, to oil 

companies for petroleum extraction, to lumber 

companies for forestry, and to the state for protected 

areas. Indigenous populations faced the 

daunting task of mastering the rules of engagement 

on several battlegrounds at once. 

Agrarian Reform and Colonization. The first 

risk many indigenous communities faced came 

from the deluge of settlers during the 1970s. 

Roads and infrastructure cleared the way into the 

Amazon, but public policy opened the floodgates. 

Agrarian reform laws in 1964 abolished the feudal 

huasipungo system that had kept Andean people 

in a state of serfdom, and promised to transform 

the highland hacienda by redistributing land to the 

poor. The Agrarian Reform and Colonization Act 

established the Instituto Ecuatoriano de Reforma 

Agraria y Colonización (IERAC) as an agency to 

implement the law. IERAC’s land-titling policies 

favored colonization over expropriation, and the 

Amazon offered a tempting solution. Since so little 

of it was titled, it must be empty, free, and 

available. IERAC soon set up offices in each 

Amazonian province, and much of the land distributed 

by the agency in its first years belonged to 

Amazonian Indians rather than hacienda owners. 

The 1978 Law of Amazon Colonization put a 

legal stamp on the policy, superseding previous 

legislation and setting a national priority on the 

settlement and occupation of the region in order 

to relieve pressure in the densely populated highlands. 

About 85 percent of the 75,000 square 

kilometers adjudicated from 1964 to 1994 was for


Table 3.2 Protected and Forest Areas in the Ecuadorian Amazon 

Protected Areas Province Area (ha) Date Decree 

Above 600 m Established Acdo/Resol 

PN Sangay Morona-Santiago 517,765 79-07-26 

PN Llangates Pastaza/Tungurahua 219,707 96-03-19 

PN Sumaco/Galeras Napo 205,249 94-04-02 

PN Podocarpus Zamora-Chinchipe/Loja 146,280 82-12-15 

RE Cayambe-Coca Sucumbios/Napo/ 403,103 70-11-17 

Pichincha 

RE Antisana Napo 120,000 93-07-21 

Subtotal 1,612,104 

Forests Areas Province Area (ha) Date Decree 

Above 600 m Established Acdo/Resol 

BP Hollín-Loreto-Coca Napo 100,046 87-12-08 #362 

87-09-22 #476 

BP Rio Tigre Sucumbios 4,908 91-06-28 #322 

BP Llanganates Napo/ Tungurahua 82,047 91-10-21 #459 

BP Antisana, Tambo, Napo/Pichincha 78,188 92-02-21 #100 

Tamboyacu, Saloya, 

Verde Cocha 

BP Cumandá Napo 224 93-12-13 #046 

BP Lumbaqui Sucumbios 95 95-05-28 #029 

Subtotal 265,508 

Protected Areas Province Area (ha) Date Decree 

Below 600 m Established Acdo/Resol 

PN Yasuni Napo/Pastaza 982,300* 79-07-27 

RPF Cuyabeno Sucumbios 655,781 79-07-26 

RB Limoncocha Sucumbios 4,613 85-09-23 

Subtotal 1,642,694 

Forest Areas Province Area (ha) Date Decree 

Below 600 m Established Acdo/Resol 

BP Pañacocha Sucumbios 56,000 94-3-23 #016 

BP Estación INIAP Napo 1,798 92-04-10 #157 

BP Venecia Napo 159 92-06-16 #280 

Subtotal 57,957 

* expanded May 1992 from 544,730 ha


Table 3.2 Protected and Forest Areas in the Ecuadorian Amazon (continued) 

Total Protected 3,259,208 (25% of 

Areas (ha) 

Ecuadorian 

Amazon) 

Upland 1,612,104 

Lowland 1,647,104 

Total Protected 323,365 (2.5% of 

Forests (ha) 

Ecuadorian 

Amazon) 

Upland 265,408 

Lowland 57,957 

Abbreviations: 

Acdo/Resol Acuerdo/Resolucion (Legal 

Agreement/ 

Resolution) 

BP Bosque Protector (Protected 

Forest) 

PN Parque Nacional (National Forest) 

RB Reserva Biológica (Biological 

Reserve) 

RE Reserva Ecológica (Ecological 

Reserve) 

RPF Reserva de (Wildlife 

Producción Faunistica Production 

Reserve) 

Source: Data compiled from Vázquez and Ulloa (1997) and from INEFAN/GEF (1996). 

colonization, and 60 percent of that was in the 

Amazon (Sawyer 1997, 5–6). As a result, nearly 

one-third of the Ecuadorian Amazon—more than 

38,000 square kilometers—was titled for settlement 

by outsiders in the short space of 30 years. 

The policy governing Amazonian land was based 

on the concept of tierras baldias, or empty lands, 

which by definition fell under state jurisdiction. 

Baldias has multiple connotations as a legal 

term—empty, unoccupied, and uncultivated. 

Incorporating notions of both use and ownership, 

it specified that lands with no owner or forested 

areas uncultivated for longer than 10 years 

reverted to the state. Indigenous occupation of 

the forest for centuries and traditional systems of 

resource management had no legal standing. 

Linkage of “appropriate use” to the granting of 

tenure rights was designed to promote market 

development, and it quickly transformed the 

landscape. Colonists were restricted to approximately 

50 hectares per family, and had to demonstrate 

within five years that at least half their 

“empty” homestead had been brought into cultivation. 

With limited labor at their disposal, most 

settlers not only clear-cut forest but had to adopt 

an easily managed production strategy to maintain 

tenure. A policy to provide bank loans for 

cattle raising ensured that vast extensions of forest 

would become pasture in an eye-blink. 

Caught in the same vice, Runa families who 

obtained title under this system also had to clear 

their lands to hold onto them (Macdonald 1999). 

Privatization of tenure to “reinvigorate” the agricultural 

sector and promote large-scale export 

crops has gained speed in Ecuador in the past 

five years, further complicating indigenous 

recourse to this body of law. The 1994 Agrarian 

Development Law (Ley de Desarrollo Agrario) 

abolished both the 1964 Agrarian Reform Law 

and the land-titling agency IERAC. The new 

implementing agency is the Instituto Nacional de 

Desarrollo Agrario (INDA). INDA continues to 

register and confer legal title; but, unlike its predecessor 

IERAC, it has no mandate to delimit 

land, and prospective owners must hire approved 

surveyors. Even applicants who can afford the 

new costs face serious delays since regional 

offices took as long as three years to open, 

thereby stalling land-titling. The office in Tena, 

capital of Napo Province, only opened in 

February 1997; the Coca office for Sucumbios 

Province was still unopened in late 1997. 

Forests. The Law of Forestry and Conservation 

of Natural Areas and Wildlife 9 puts usufructuary 

rights to forests under the administration of 

INEFAN, the Ecuadorian Institute for Forestry and 

Natural Areas. 10 The law has two broad 

branches—one for production forests and one for 

protected areas. Indigenous peoples whose lands 

fall within INEFAN’s purview obtain title or use


rights from INEFAN rather than IERAC, and must 

meet different demands depending on how the 

land has been categorized—as protected forest, 

national park, or one of several kinds of reserve. 

The Ecuadorian state claims extensive public land 

in the Amazon, but has difficulty controlling it. 

Policies to regulate colonization through planned 

settlement projects proved to be largely ineffectual, 

and were swamped by the spontaneous movement 

of people from drought-stricken regions. 

Development of a protected-area network that 

now encompasses 25 percent of the Amazon 

(see table 3.2) looks more impressive on a map 

than on the ground. INEFAN (and previously 

DINAF, Dirección Nacional Forestal, the Forest 

Directorate) lacks the manpower and resources 

to administer such a system and ward off the 

intense development pressures. Promoting conservation 

on ancestral, communal, or private 

lands, which include the majority of forest in the 

region, has been even harder. Institutional support 

from the Global Environment Facility (GEF) 

of the World Bank, the German aid organization 

GTZ, and others has helped improve INEFAN’s 

capacity, but effective management of conservation 

areas is unlikely without significant coordination 

with local communities. 

In developing a protected area around Sumaco 

Volcano, the zone inhabited by communities was 

redefined as either Forest Patrimony (Patrimonio 

Forestal) or Protected Forest (Bosque Protector), 

removing it from the jurisdiction of agricultural 

reform law administered by IERAC. 

Communities could receive tenure directly from 

INEFAN by presenting a management plan that 

would be reviewed periodically for renewal. 

Tenure also required communities to organize forest 

worker cooperatives to implement the plan, a 

form substantially different than the comunas or 

centros acceptable under Agrarian Reform Law. 

III. The Evolution of PUMAREN 

For more than five months following the devastating 

earthquake of March 1987, broken roads 

and shattered pipelines cut off the flow of petroleum 

from Napo Province, severing the country’s 

principal source of income. Resources were funneled 

to hasten completion of a more direct road 

from the provincial capital of Coca to Pacific 

ports. The final leg, known as the Hollín–Loreto 

road, was carved along the flank of Sumaco 

Volcano. By December, traffic started to move, 

opening a biologically diverse and little-impacted 

region to logging and colonization. 

During the more than five years of construction, 

the government of Ecuador never proposed any 

measures to allay the biological and cultural 

impacts of the new road, even though the untoward 

side effects of earlier infrastructure development 

in the region were well known. So the 

Runa communities living in the area took two 

major actions on their own, assisted by FOIN. 

First, those living at lower altitudes moved from 

their dispersed forest clearings to villages spaced 

out along the planned roadbed to discourage 

spontaneous colonization. Sentinel villages 

could better monitor incursions and stake out 

indigenous claims to the land. Second, some 

people moved from their primary lowland residences 

to higher-altitude hunting territories to 

secure rights there. 

Both strategies had unintended side effects. 

Concentrated population meant concentrated land 

clearing that intensified pressure on the forest 

around villages and its capacity for regrowth. 

Those who moved higher up to cultivate mountainous 

ecosystems found them unable to support 

traditional forest management. Unable to manage 

basic subsistence, families turned to cash crops, 

cattle, and other income sources to buy food. 

Local indigenous federations (with support from 

Capuchin missionaries, nonprofit organizations 

such as Cultural Survival, and donor agencies 

such as the Inter-American Foundation) worked 

with member communities to secure legal rights 

to this large, traditionally indigenous territory. 

They never gained significant political support 

for their efforts, but persistence achieved partial 

success in land titling. Yet even that success was 

undermined because the federations had yet to 

devise a workable strategy to help member communities 

make the transition to a cash economy. 

Even as internal resettlement efforts grew unsustainable, 

the federations were failing to meet the 

external threat that had called them into being. 

When the Hollín–Loreto road opened, colonists 

spontaneously put down roots wherever the Runa 

had left a gap. The government even moved earthquake 

victims into a newly created town called El


Pacto Sumaco. Colonists quickly cleared land for 

cash crops and began small-scale logging with 

chain saws and mules. Two lumber companies, 

ENDESA and Arboriente, then negotiated with 

cash-starved Runa villages the right to extract 

whole trees. Villagers thought this would be a 

painless way to settle outstanding bank loans for 

cattle raising. The communities were dismayed, 

however, when loggers who had contracted for 

prized specimens of copal (Dacryodes olivifera) at 

$4 a tree leveled nearby trees as well, and hauled 

the booty out on roads cut through crop fields. 

These practices left some villagers ruined when the 

company refused to pay for damages. FOIN 

feared that all their efforts had come to naught. 

This early setback, however, stiffened the resolve 

of local communities to organize their own 

resource management to generate income. 11 And 

the earthquake also brought in influential outside 

actors who tipped the balance of power in the 

region. USAID funded the bridges to make the 

Hollín–Loreto road passable, but restrictions 

imposed by the U.S. Congress conditioned all 

such assistance in tropical rain forests on mitigation 

of deforestation along the demarcated route. 

Among the steps USAID requested of the 

Ecuadorian government was to make the Sumaco 

area a protected conservation zone. USAID also 

provided FOIN with seed money for a land-titling 

and resource-management proposal to strengthen 

the ability of indigenous inhabitants to control 

deforestation in their territory. This was the seed 

of what would eventually become the PUMAREN 

project. The following subsections review three 

phases in the development of natural resource 

management in Runa territory, moving from land 

titling and community evaluations in Project 

LETIMAREN, to the income-generation activities 

of PUMAREN and its later fragmentation. 

3.1 Phase One: Land Titling and 

Assessment (~1988–1990) 

The Federation of Indigenous Organizations of 

Napo (FOIN) is one of four principal organizations 

representing Runa in the Ecuadorian 

Amazon. 12 As of 1997, FOIN represented 101 

member communities. 13 Every three years communities 

select federation officials to carry out 

programs in land titling, agriculture, and health, 

and to provide a regional political voice. 

FOIN’S Sumaco effort got under way in March 

1988 as Project LETIMAREN (Legalization of 

Indigenous Lands and Management of Natural 

Resources). Local priorities and those of 

donors overlapped without coinciding. 

USAID’s principal concern was to prevent 

deforestation and biodiversity loss. This would 

occur primarily through establishment of a protected-area 

model for the region, with supplementary 

seed funding for FOIN. FOIN’s 

objective was to secure indigenous control over 

this traditional territory, and then to help member 

communities maintain control by managing 

forest resources to earn income without depleting 

their children’s legacy. FOIN’s leadership 

denounced rapid deforestation by logging companies 

that had signed contracts with indigenous 

communities and homesteaders along the road. 

But this deforestation was viewed in terms of 

loss of indigenous control over resource use that 

stemmed from unfavorable and deceptive contract 

terms logging companies negotiated with 

unsuspecting and unprepared villagers. 

The federation also saw the local crisis as an 

opportunity to develop a response to a regional 

problem. International attention had spotlighted 

Sumaco, but incorporation of Napo into the 

national economy had transformed indigenous 

land use and tenure throughout the province. 

Many other Runa communities were struggling 

quietly out of sight, and FOIN hoped to learn 

how to help them by developing models from the 

influx of funding and technical assistance donors 

had earmarked for communities along the 

Hollín–Loreto road. 

FOIN’s leaders decided to form and train a 

resource management team from a group of 

recent high school graduates who had participated 

in the federation’s youth leadership program. 

They would work with member communities to 

secure land rights and to help develop more sustainable 

economic strategies as their resource base 

was threatened. 

After training by Cultural Survival and FUNDA- 

GRO (Fundación para el Desarrollo 

Agropecuario) in social-science data collection 

and analysis, the team fanned out to survey the 

29 communities affected by the Hollín–Loreto 

road about the legal status of their lands and the 

impact of logging in the zone. Surveyors would


also conduct a census of the local indigenous 

population, and evaluate community needs and 

methods of resource management. 

Results were compiled in Legalization of 

Indigenous Lands and Management of Natural 

Resources in the Hollín–Loreto Road Zone of 

Influence (FOIN–Cultural Survival 1988). The 

report showed that out of 29 communities, 9 (or 

31 percent) had legal title to land totaling 72,602 

hectares. Another four (or 14 percent) had presented 

documented claims and were waiting for 

approval of 20,651 hectares. The remaining 16 

communities had not been able to obtain title or 

were attempting to obtain individual family titles 

to small plots. One of the longest-settled communities 

in the zone had been trying to obtain 

title for over 10 years without success. 

The 29 communities contained approximately 

9,000 indigenous inhabitants. More than 50 percent 

were under 15 years old, at least half of 

whom would soon come of age and require land 

to establish families. The amount of land eligible 

for legalization was often restricted by the government 

to that needed by the present adult population, 

ignoring pressing needs for future 

agricultural production or for forest range to support 

hunting and gathering. 

Seven centers of outside colonization were identified. 

These settlements were established 

despite the accord between the Ministry of 

Agriculture and USAID that government would 

not promote colonization in the area. Some 

colonists occupied areas where individual indigenous 

families had failed to claim and title the 

land they used; others were authorized to occupy 

illegally territory already delimited as indigenous 

by IERAC under agrarian reform law. The 

FOIN–CS report highlighted how the Law of 

Open Lands and Colonization (Ley de Tierras 

Baldias y Colonización) gave traditional indigenous 

settlements priority in adjudication of titles. 

This called attention to the fact that IERAC was 

not following its own statutes, and that local governments 

were acting in ways that contravened 

agreements made by the national government. 

Although oil had yet to be discovered in the 

Sumaco area, the government had assigned 

exploration rights to multinational companies. 

The potential threat was of great concern because 

19 of the communities surveyed were located 

inside the Block 7 concession assigned to British 

Petroleum, and two were inside ESSO’s Block 8. 

FOIN presented the report to Ministry of 

Agriculture officials just before the presidential 

elections to get maximum leverage. The timing 

was designed to appeal to the liberal presidency 

of Rodrigo Borja. Based on survey data, FOIN 

proposed specific government actions to halt 

indiscriminate logging and promote resource 

management in the region. The government was 

asked to expedite adequate global land titles for 

indigenous communities in the zone and act to 

halt colonization. One of the boldest proposals 

called for establishment of an Ethnic Forest 

Biosphere Reserve in untitled lands that would 

be managed under formal contract with indigenous 

organizations, with government support to 

train personnel and test alternative land-use 

strategies. This idea was inspired by the Awá 

Reserve on Ecuador’s Pacific Coast. 

The report was designed to build on a recent 

departure from previous indigenous calls for land 

title. For the first time in the Ecuadorian 

Amazon, communities were seeking legal title 

under the rubric of forestry law. In 1987 a band 

of land bordering the Hollín–Loreto road—land 

totaling 100,046 hectares and incorporating the 

principal area of settlement—had been declared 

“protected” 14 and transferred administratively to 

the Forestry Directorate (DINAF). As a result, 

many communities along the road no longer had 

to deal with IERAC, which for 20 years had 

shown little political will to process and protect 

indigenous land titles. 

The land-titling process was FOIN’s first positive 

interaction with DINAF, which previously had 

been perceived to favor industry. 15 Of course, the 

government now had an incentive to regularize 

and expedite tenure in the zone to meet USAID’s 

conditions for road construction. If that stiffened 

DINAF’S will, the LETIMAREN (later 

PUMAREN) project made DINAF’s task easier 

by providing a framework for interactions with 

local communities and permitting titling to move 

ahead as a block. It also simplified another 

requirement. A community seeking title in an 

area of protected forest must develop a management 

plan. DINAF agreed that the 29 indigenous 

communities along the road could fold all of 

their plans together through LETIMAREN. The 

collaboration among communities, FOIN, and


DINAF and its successor, INEFAN, proved effective. 

By 1992, 55 percent of the communities 

had secured legal title. By 1997, all except two 

new ones had tenure. 

However, indigenous participation in planning the 

proposed protected area was far less effective. 

Government plans to conserve the Sumaco area 

proceeded steadily. Studies of the socioeconomic 

status of the region’s population, the land-use 

capacity of the zone, and possible management 

alternatives were carried out by the Ecuadorian 

NGO Fundación Natura in 1989 (Pereira et al. 

1989) and by a USAID consulting team in 1990 

(Hanrahan and Pereira 1990). By 1992, a feasibility 

study carried out with German government 

support proposed establishment of a national park 

for Sumaco Volcano and the adjoining Galeras 

Ridge. In April 1994, 205,249 hectares were officially 

set aside as the Sumaco–Galeras National 

Park. An interim institution, Proyecto Gran 

Sumaco, was established within INEFAN with 

financial and technical support from the German 

aid organization GTZ, and offices were opened in 

Quito and in the regional capital of Tena to help 

establish the park. 

Throughout this process of planning and establishing 

the park, there was little coordination and a climate 

of mutual suspicion between the government 

and the Indian organizations. The government 

never seemed to take seriously the idea that indigenous 

organizations were capable of managing a 

protected area. The lack of any response to 

FOIN’s proposal to form a partnership only deepened 

FOIN’s underlying distrust of government 

intentions. Unable to engage the process from the 

inside, FOIN watched park formation unfold from 

the outside. It continued to insist on a joint management 

model under a conservation category that 

recognized indigenous rights to the area, without 

being able to show (partly because it was not asked 

to do so) how the idea would work in practice. 

This proposal regarding Sumaco reflected a 

larger strategy being promoted by the regional 

Amazonian and national Indian organizations in 

Ecuador. In 1990–1991, CONFENIAE drafted a 

map that reclaimed existing protected areas in the 

Amazon as indigenous territory to be jointly 

managed by local Indian federations and communities 

in coordination with INEFAN. This proposal 

was also greeted with silence. 

The Sumaco and regional indigenous proposals 

were virtually identical, and both might have been 

more persuasive if FOIN had better used its own 

resource management team. LETIMAREN 

(PUMAREN) staff members were minimally 

involved in drafting proposals, or in government 

negotiations, despite their hands-on involvement 

with local planning, management alternatives, and 

the protected-area model. They were on good 

terms with INEFAN personnel in promoting land 

titling, and were working closely with local communities 

to develop forest management plans. As 

for theory, the LETIMAREN team had been 

immersed since completion of the community 

survey in learning resource management. 

Indigenous-to-indigenous training had been used 

to help Runa staff overcome suspicion of conservationists’ 

motives. The team had visited other 

indigenous experiments in resource management 

being carried out by the Awá in northeastern 

Ecuador, by the Kuna PEMASKY project in 

Panama, and by the Yanesha in the Peruvian 

Amazon. Kuna trainers spent four months 

instructing the team in conservation models (putting 

into perspective the different conservation categories 

then in use) and in different management 

alternatives that local communities might consider 

(including agroforestry, tourism, and community 

forestry). At the same time, team and community 

members began to learn field techniques for inventorying 

forests and planning their management. 

From these experiences had emerged an interest in 

community forestry that would take shape in 

phase two of PUMAREN. Yanesha trainers from 

a forestry project in Palcazu, Peru, would visit 

twice to aid assessment of this alternative. 

None of this knowledge was tapped in responding 

to the park proposal, however, because FOIN 

and its regional confederation discounted the 

team as young and politically inexperienced. As 

a result, indigenous organizations framed their 

proposals rhetorically and were unable to provide 

specifics to show the government and the public 

how joint management would work. 

3.2 Phase Two: Community Planning 

(1991–1995) 

As land titling moved forward and began to 

occupy less time, project staff began to apply what 

they had learned from the Awá, the Kuna, and 

other indigenous trainers by helping communities


develop income-generating activities that were 

economically and environmentally sustainable. 

By 1991 LETIMAREN had been renamed 

PUMAREN (Project for the Use and Management 

of Natural Resources) to reflect this new thrust. 

The focus of training now shifted to community 

members as the PUMAREN team helped local 

groups assess their resource bases and tried to 

identify those able and willing to participate in a 

model enterprise. PUMAREN staff had leeway to 

get the enterprise up and going, but were ultimately 

responsible to FOIN, which held the purse 

strings for donor money. WWF joined CS as the 

principal institutions providing financial and technical 

support during this phase. 

All the parties involved in planning the community 

forestry enterprise set out to keep the project 

as small and simple as possible. Three villages 

interested in developing a community forestry 

enterprise on their lands were selected (see table 

3.3). The federation’s criteria for participation 

included (1) a demonstrated ability to organize as 

a community and carry out planned activities; 

(2) forest reserves that the community was willing 

to manage jointly; and (3) access, or planned 

access, to a road. 

Each of the three communities agreed to set aside 

a forest reserve for common management, leaving 

enough land for member households to work 

their own agroforestry plots. Logging in these 

areas was intended to supplement and not replace 

each person’s agricultural work, and designated 

forest reserves comprised only 6 to 18 percent of 

each community’s total land area. Within these 

management areas, logging would only be permitted 

in specified sections where logging could 

be done efficiently and with minimal collateral 

damage. The community of Huahua Sumaco, 

where steep slopes were common, set aside only 

24 percent of its reserve as suitable for timber 

extraction. The flatter terrain of Amazonas and 

Chonta Cocha allowed those communities to target 

nearly half their reserves. 

To keep capital investments and environmental 

impacts low and to reduce the tasks that had to be 

mastered, advisors proposed that chain saws with 

guides be used to cut trees and mill planks in the 

forest, so that wood could be more easily toted 

out with mules. However, as the project took 

shape a more elaborate vision began to emerge. 

Forestry consultants hired by PUMAREN argued 

that the only way to cover the communities’ man- 

Table 3.3 Population, Area, and Forest Reserves of Three Communities in 

the PUMAREN Forestry Project 

Community Population Total Area of Operable Commercial 

(Number Area Forest Area Volume 

of Families) (km 2 ) Management _______________ m 3 /ha/yr 

(km 2 ) km 2 % of 

total area 

Amazonas NA 48 6.6 2.8 5.8% 83 

(126) 

Chonta Cocha 170 22 2.0 1.0 4.5% 139 

(40) 

Huahua Sumaco 250 28 5.0 1.2 4.3% 123 

(44) 

Population from unpublished FOIN data, June 1997. 

Area and volume statistics from Rubio, et al. (1995).


agement costs was to develop a business plan that 

targeted an export or a national market that could 

absorb a wider variety of tree species, offer better 

prices, and bypass middlemen. The relatively 

modest scale of the initial proposal soon expanded 

as dryers, carpentry equipment, milling gear, 

and a processing center to house them were proposed 

as a way to add value to local wood and 

produce high-quality, planed lumber for export. 

The cost of acquiring this infrastructure while 

training novice workers to operate and maintain it 

would quickly become substantial. 

By industrial standards, the envisioned enterprise 

looked miniscule, but keeping it supplied 

with wood to fulfill contracts with demanding 

buyers would require the communities to adopt 

socioeconomic models that were completely new 

to them. The communities would have to learn 

to work together as a team and pool forest 

resources to generate the volumes needed since 

preliminary inventories of their trees made it 

clear that none had sufficient reserves to justify 

a stand-alone enterprise. 

Although the upgraded project would be demanding, 

it seemed doable, and all parties decided to 

move ahead. However the shift in project focus 

left little wiggle room for mistakes and proved to 

be more difficult to implement than either the advisors 

or the community members had anticipated. 

Some of the challenges were common to timber 

enterprises throughout the tropics. For instance, 

there is no developed market for the lesser-known 

woods that make up the majority of tree species 

found in rain forests. This problem was exacerbated 

in the PUMAREN project because the forest 

reserves of the three communities comprised different 

ecosystems and therefore different kinds of 

wood. Huahua Sumaco’s land ranges in elevation 

between 1,000 and 1,400 meters, and is characterized 

by Premontane Rain Forest growing in volcanic 

soils on dissected mountainsides, often with 

steep slopes. Rain falls throughout the year and 

totals 4 to 6 meters annually. Many of the tree 

species found there and higher up on the mountain 

are not found in either of the other two communities 

even though they are common near Huahua 

Sumaco. The woods of Amazonas and Chonta 

Cocha grow at elevations below 400 meters, are 

rooted in sedimentary soils, and are classified as 

Tropical Moist Forest. Joining forces would, 

indeed, boost the amount of timber a pilot project 

could process, but the diverse makeup of that wood 

would make marketing much trickier. 

The expanded project also intensified the importance 

of training in both forest management and 

business skills. Forest management was relatively 

easy for community members to grasp and 

master since they had extensive knowledge of 

their land and its habitats. Even so, inventorying 

trees to identify marketable species and drafting 

final management plans that adjusted harvesting 

methods to regeneration cycles fell behind schedule. 

Many of the snags were the result of not 

delegating sufficient control of the process to the 

communities who were expected to operate the 

enterprise once it was up and running. By the 

time phase three of PUMAREN was scheduled to 

start, only the community of Huahua Sumaco 

had finished a management plan. 

This did not bode well for other aspects of the 

project that did not rest on a solid foundation of 

prior community experience. As a later study by 

regional indigenous organizations of income-generating 

community projects would show (Smith 

and Wray 1996), business administration and 

marketing skills are difficult to graft onto the 

trunk of a “gift economy”—one that is based on 

subsistence and reciprocal exchange. In the case 

of PUMAREN, market experience varied widely 

among the three communities. Huahua Sumaco 

was the most closely linked to and dependent on 

markets, and its local project leaders proved to be 

very entrepreneurial. However, even they had 

difficulty picturing who their customers would 

actually be. For the business to flourish, the 

communities would need substantial and sustained 

technical support. 

Because the economic challenge was understood 

to be daunting, it received much of the focus of 

project advisors and participants. Unfortunately, 

the social challenge was not so well understood. 

What looked like a hill was actually the summit 

of a mountain enveloped by clouds. Even the 

federation and villagers were unaware of how 

massive the hidden obstacles might be. The 

communities were selected, in part, because they 

had shown the ability to mobilize to protect their 

land. Yet they had not had much experience 

working with each other, which is what they 

would have to do in processing and marketing if 

the project was to be economically viable.


This kind of cooperation would have been a 

challenge even if only one community had been 

involved. Members were accustomed to working 

individually or as a part of household units. 

Although kinship relationships often extended 

beyond the village and tied households 

together, families in these three communities 

had few significant links with one another. 

Building relationships, while conceivable, 

would take time and effort, which a tight project 

schedule might not permit. Had there been 

a more conscious effort to build on existing ties 

and customary patterns of organizing work, a 

different economic model might have evolved 

that did not rely upon a strained partnership 

between unrelated communities. 

As the communities and the federation struggled 

to find their common footing, factors over which 

they had little control continued to trip them up. 

Even land tenure proved to be thornier than 

expected. Chonta Cocha, in particular, was 

unable to obtain legal title. FOIN, based in Tena, 

was able to facilitate the process for the communities 

in that jurisdiction, but Chonta Cocha is 

located in another administrative unit and had to 

work with the agrarian land-titling agency in 

Coca. The delay of working at a distance was 

further exacerbated when, as Section 2.4 details, 

the 1994 Agrarian Development Law set up a 

new agency, INDA, to title land, including 

parcels that were to be processed under forestry 

law. More than three years later, the INDA 

branch office in Coca would still be on the drawing 

board, paralyzing local adjudications. 

As the time neared for active implementation to 

begin, even FOIN’s requirement that project communities 

have imminent access to roads began to 

seem overly ambitious. Although Huahua Sumaco 

was located along the Hollín-Loreto road, the 

other two communities were not and required construction 

or improvement of side roads if they 

were to export their timber. Despite years of effort 

with the local municipalities, preliminary roadbeds 

were not upgraded. In December 1994, on the eve 

of phase three, they were still rivers of mud. 

Amazonas and Chonta Cocha would each eventually 

complete the mapping of their borders, marking 

out individual members’ parcels and 

communal reserves. They would distinguish areas 

of harvesting from zones to be protected and 

inventory their resources, but by then PUMAREN 

itself would be unrecognizable. 

3.3 Phase Three: Downsizing and 

Fragmentation (1995–Present) 

In 1995 the project received funding from the 

United Nations Development Programme (UNDP) 

for equipment to implement the forest management 

project. This funded chain-saw mills, carpentry 

and wood-processing equipment, a 

generator, and the construction of a processing and 

storage center. At about the same time, WWF and 

Cultural Survival withdrew from the project for 

different reasons, leaving PUMAREN and the 

communities without technical assistance. CS 

experienced an organizational crisis that forced it 

to withdraw from projects in many areas of the 

world. WWF was operating on a narrow timeline 

and withdrew when its activities were scheduled 

for completion. The PUMAREN team was unable 

to obtain new funding and was forced to downsize 

when the federation could not pay salaries. 

Although WWF had planned to be present when 

equipment purchases were made, delays in the 

UNDP grant left the communities without support 

when critical decisions were made. Furthermore, 

since basic organizational issues had never been 

adequately addressed, an underlying lack of consensus 

soon emerged as a significant problem. 

The communities had never agreed about exactly 

where on the Hollín-Loreto road the processing 

center should be located to maximize efficiency 

and reduce costs—higher up near Huahua 

Sumaco or in the town of Loreto, which was 

closer to the two lowland communities. 

Ultimately consultants hired by UNDP broke the 

impasse and chose the Loreto site. Yet even 

with construction under way, neither Amazonas 

nor Chonta Cocha had a finished forest management 

plan or a finished road to haul timber out 

on. Huahua Sumaco, on the other hand, was 

eager to start implementing the plan it had prepared 

and gotten approved. Lacking easy access 

to the proposed processing center, the community 

began to clamor for locating the carpentry 

equipment within Huahua Sumaco. The wrangling 

only grew more intense when the architect 

hired to design the processing center underestimated 

the cost, and construction halted midway 

as funds ran out.


Ultimately the uneasy alliance splintered, and 

Huahua Sumaco moved ahead on its own with a 

redesigned project on a smaller scale. The community 

succeeded in obtaining use of the carpentry 

equipment (officially owned by FOIN). They 

reorganized activities to focus on interested individual 

community members who were made 

responsible for, and would benefit directly from, 

different forestry activities, including care of the 

mules used to haul wood out and the processing 

of what had been extracted. To gain experience 

and benefit the community, participants decided 

to produce wood for local housing and to construct 

crates for selling their naranjilla fruit 

crops. Some individuals planned to sell boards, 

milled with a chain saw, on the local market. 

The lowland communities, however, were stalled 

since they had no support to finish their management 

plans or revise them midstream. Chonta 

Cocha, frustrated by these combined setbacks, 

decided to withdraw. Amazonas continues to wait 

for the situation to improve, but has not figured 

out how to reduce the scale of activities from the 

ambitious plan villagers originally approved. 

One institution has partially filled the gap left 

by the departure of WWF and CS. The Gran 

Sumaco Project, which is establishing the national 

park, has provided limited funding and technical 

assistance. However, until recently its activities 

have been planned and carried out directly with 

communities and not with the federation. In the 

initial phase of park consolidation, Gran Sumaco 

has worked with three upland communities in the 

buffer zone of protected forests, including Huahua 

Sumaco. It has carried out socioeconomic studies 

and provided broad support to communities in 

agriculture and agroforestry, and limited support 

to the forestry enterprise. There are no activities 

in the lowland zone. Although support to FOIN 

has recently resumed, initial activities were carried 

out by hiring individual PUMAREN team 

members, whom the federation could no longer 

pay, to provide technical assistance to buffer-zone 

communities and to train as park guards. 

IV. Building Effective 

Partnerships—Lessons in Scale 

Although the PUMAREN project fell short of 

expectations, what happened must be understood 

in the context of an evolving effort to build relationships 

that achieve conservation through sustainable 

resource management. It is rich in lessons 

at three levels, with implications that stretch 

beyond Sumaco to include the whole region. 

4.1 The Role of Federations in Community 

Enterprises 

Some of the problems of PUMAREN can be 

traced to internal contradictions at the core of the 

federation and its relationship with member communities. 

The LETIMAREN phase of the project 

went smoothly, but land titling and surveying 

communities to voice their interests politically 

were activities familiar to FOIN and within its 

traditional scope of operations. Serious contradictions 

only began to surface during the project’s 

second phase, when the focus switched to 

developing economic projects. 

FOIN knew that action was needed, not only to 

maintain tenure and benefit member communities, 

but to strengthen the federation’s autonomy. 

Since its inception, FOIN has required foundation 

funds to carry out its work and has struggled 

with the dependency that resulted. The leadership 

believed it was necessary to find ways to 

increase their financial independence if they were 

to set priorities and keep the strategic agenda 

from being distorted. Two possibilities existed. 

One was that communities could pay fees to the 

federation in recognition of its services. This 

could occur through membership dues or through 

remittance of a portion of the gains from community 

projects. However, the communities had 

never been willing to support the federation in 

this way. A second possibility was for the federation 

to become directly involved in economic 

activities and earn a financial return. Some of 

the leadership, however, feared that transforming 

FOIN into an economic entity could undermine 

its political independence. They also feared that 

an independent economic structure for community 

projects would take on a life of its own that 

might eventually undermine the federation itself. 

As a result, the PUMAREN team never received 

a clear mandate. It was conceived as a technical 

arm of the federation that would work directly 

with communities to develop economic alternatives. 

However, such a unit could play a variety 

of roles. It could 1) build networks to broker 

marketing, funding, etc.; 2) provide communities


with planning and technical support services; or 

3) establish an economic partnership with communities 

by taking responsibility for activities 

such as marketing. FOIN was well positioned to 

carry out the first role. It had developed a strong 

national and international network over the years 

and had achieved some success in obtaining 

funds. Although links for marketing and investment 

were weak, new contacts were made as the 

project evolved. PUMAREN also succeeded in 

training a core team able to work with communities 

to evaluate their resource base and alternatives, 

produce resource management plans, and 

provide limited technical support. Confusion, 

however, abounded when FOIN proposed working 

in partnership with communities to develop 

income-producing activities. 

The federation envisioned that work would start at 

a small scale, focusing on a few communities. If 

successful, the model could be shared with other 

communities, which would become involved over 

time and learn from earlier experiences. However 

the economic model proposed by advisors was not 

a community-based enterprise that other communities 

could replicate one by one. It required a 

critical mass of participating communities interacting 

with one another to succeed. Under this scenario, 

the PUMAREN community forestry project 

represented both a new economic model and a 

new social model. To achieve economies of scale, 

forestry enterprises must coordinate activities 

among communities as well as links with regional 

organizations. Individuals and communities have 

not traditionally worked in this way, so it never 

became clear who was in charge of the forestry 

project. Some of this ambiguity might have been 

avoided if PUMAREN had been built on underlying 

social relationships. The two lowland forest 

communities near Sumaco maintain contact with 

each other and might have been able to build on 

that trust to carry out a joint project. Including an 

upland community without such ties argued for a 

different approach. 

The project shows that greater attention to the 

nuances of cultural links is required to forge new 

organizational structures. New group structures 

are theoretically feasible, but the effort to create 

them requires significantly greater resources and 

a wider consensus than was available here. 

Perhaps recommendations that focus on the 

advantages of group marketing are inappropriate 

at this stage until FOIN and its member communities 

have thought through the federation’s economic 

role and an effective and responsive 

organizational structure for implementing it. 

PUMAREN was one of FOIN’s first experiments 

with a sustainable development project. Its 

progress has been followed by indigenous communities 

belonging to other federations in three 

provinces where Runa claim significant territory. 

Until now, the federations have worked to promote 

regional and national policies that benefit 

their broad indigenous constituency by providing 

individual communities with political clout. 

Now they find themselves having to develop the 

administrative capacity to work on the ground 

with communities. Clarification of relationships 

has been impeded by the inherent conflicts of 

trying to carry out both a political and economic 

agenda, and appropriate organizational structures 

are still being developed. 

Of course, community forestry is only one of several 

alternatives being explored, some by communities 

themselves. The most notable of these was 

started by Capirona, and then expanded to other 

communities, mainly near the banks of the Napo 

River. With support from the NGO Ayuda en 

Acción, an indigenous ecotourism network called 

RICANCIE (Red Indígena de Comunidades del 

Alto Napo para la Convivencia Intercultural y 

Ecoturismo) has formed to promote communitycontrolled 

tourism. 

4.2 NGOs and the Myth of Stand-Alone 

Projects 

PUMAREN also highlights the role of NGOs in 

helping indigenous communities and organizations 

develop new economic models. NGOs offer 

technical advice and training. They can link local 

community projects to a wide network of valuable 

contacts. They can provide financial backing, 

especially to buffer the risk of starting new ventures, 

and help fledgling management find its feet. 

However even in a good working relationship— 

where the local organizations significantly control 

planning and implementation—three questions 

must be addressed. First, is the technical advice 

too ambitious, outstripping the NGO’s capacity to 

provide effective support? Indigenous conservation/development 

projects theoretically can be


small or large—from household-based to regional 

in scope. However, difficulty in developing new 

structures and coordinating multiple layers of 

organization rises with the grandeur of the conceptualization. 

Second, is the continuity of support 

adequate? The more complicated the project 

is, the longer technical and economic assistance 

will likely be needed. Finally, does the technical 

advice match the social conditions? Even in relatively 

simple projects, planning a time frame that 

permits communities and organizations to evolve 

culturally appropriate structures for ongoing management 

is tricky. 

Two international NGOs played a critical role in 

PUMAREN. Cultural Survival, an indigenous 

rights organization, helped to establish the project 

and saw it as an opportunity to strengthen 

federation capacity to serve member communities. 

CS focused assistance at the federation 

level. World Wildlife Fund–US, an environmental 

NGO, started to work in partnership with CS 

when PUMAREN zeroed in on community 

forestry. Together they provided direct financial 

and technical assistance to FOIN, and helped to 

establish links with other indigenous projects and 

support institutions. 

Although initially conceived as a small-scale 

project based on individual communities, 

PUMAREN soon developed into a formal enterprise 

requiring the coordination of multiple communities 

to achieve economies of scale and 

continuity of supply. To project advisers, the 

proposed structure was still small-scale and 

seemed manageable with appropriate training. 

However the communities had no administrative 

experience, no commercial forestry expertise, no 

experience with marketing, and no contacts to 

build such a network. Furthermore the cost of 

adding value to harvested timber quickly scaled 

the project out of direct community control. 

Local participants were dependent on outsiders 

not only for training, but for market links and 

start-up capital. 

Development of new regional economic structures 

creates these kinds of dependencies, which require 

sustained investment most NGOs are unwilling or 

unable to give. Where a group of NGOs is 

involved, support must be coordinated so that delay 

in one project component doesn’t derail the rest. 

In the case of PUMAREN, CS was able to leverage 

significant support early on, and was institutionally 

committed to a long-term relationship with 

FOIN. However, unexpected cutbacks in its own 

funding forced CS to withdraw precipitously in 

1994. The other major NGO, WWF, had a narrower, 

short-term commitment to the community 

forestry project. Unfortunately its support ended at 

a critical juncture—soon after CS’s departure and 

just before the large UNDP grant arrived. 

Equipment-buying decisions had to be made, but 

were made in the absence of agreed-upon relationships 

with clear responsibilities and an agreedupon 

distribution of benefits. The decisions were 

made despite the problem of appropriate scale, 

which had been highlighted but not yet resolved. 

NGOs often think of a pilot project in conservation 

and development as a stand-alone model and 

assume it will be self-replicating once it is shown 

to work. PUMAREN suggests that the model 

has to fit the needs of the community implementing 

it and mesh with a larger matrix of social 

structures if it is to survive and replicate. In this 

case, the design did not mesh with either the 

communities or the federation. 

4.3 Government, Communities, and the 

Pyrrhic Victory of National Parks 

Since development of a protected area around 

Sumaco, interactions between government institutions 

and local indigenous peoples have varied 

significantly, showing progress on some fronts 

and persistent problems in others. First, some 

policy changes have been beneficial. Longstanding 

federation efforts to acquire tenure for 

member communities were expedited by application 

of land-titling categories new to the 

region. Furthermore, the shift in institutional 

responsibility away from the agrarian reform 

agency to the forestry and natural resources 

divisions (DINAF/INEFAN) constructively 

linked land titling with resource use. It facilitated 

the federation’s efforts to steer community 

management plans away from destructive cattle 

herding and toward potentially sustainable 

forestry and agriculture. 

The relationship between INEFAN and 

PUMAREN also improved at the local level as 

INEFAN provided technical support and training 

to the project team in the development of management 

plans. Frequent communication has led


to greater trust and better coordination. These 

links have also provided FOIN with a potentially 

positive channel for pushing proposals for comanagement 

based on the practical aspects of 

community economic development, rather than 

the highly charged politics that characterized previous 

contacts. 

But at the same time, development of a protected-area 

model has weakened indigenous control 

over this territory. Establishment of a 

national park has made indigenous communities 

and federations just one of many stakeholders. 

Although able to influence decisions about 

resource use in the region, they lack the deciding 

voice that would come from establishment and 

recognition of an indigenous territory. 

The government’s Gran Sumaco Project to help 

establish the park has had a number of side 

effects. One of them seems ironically beneficial. 

In working with the single community of Huahua 

Sumaco, the Gran Sumaco Project showed that 

PUMAREN’s original simple structure for a 

forestry project was probably on track. Yet by 

tending to focus its efforts (as has INEFAN) on 

individual communities within the park buffer 

zone, the government undermines the coordinating 

role played by the federation and arbitrarily 

divides the social fabric of the region by excluding 

communities in the much larger area outside 

the park. Because it sees the indigenous population 

as one among many with interests in the 

area, the Gran Sumaco Project has also elevated 

the claims of others within the region. One day 

the established park may be as magnificently 

unique as Sumaco Volcano, standing in splendid 

isolation as a green island in a landscape devastated 

by unbridled development. 

V. The Future of the Region 

Indigenous federations have made great strides to 

be included in the political life of Ecuador. Their 

leaders have become adept at organizing a variety 

of successful campaigns that have raised awareness 

about issues ranging from land claims to the 

impacts of oil development on indigenous communities. 

In building a regional, national, and international 

movement, they have also forged a broader 

“indigenous” identity that cuts across ethnic boundaries. 

Their struggle has gone a long way to transform 

the public’s image of indigenous peoples. 

A vital part of the campaign for indigenous rights 

has been the ongoing fight for legal recognition 

that Ecuador is a “plurinational state”—a country 

that comprises different ethnic “nations.” 

Indigenous organizations have proposed amending 

the national Constitution to mandate a decentralized 

political and administrative structure. 

The amendment would recognize the cultural 

heterogeneity of the country and allow local control 

over economic and cultural development. 16 

That would have significant consequences for the 

Ecuadorian Amazon, much of which indigenous 

peoples claim as ancestral land. In the past quarter 

century, they have already achieved remarkable 

success in obtaining title to large segments 

of this territory, largely through the work of 

indigenous organizations formed in response to 

development pressures. The proposed political 

changes would have a greater impact on conservation 

of the region than any activities with individual 

communities are likely to achieve. Those 

interested in conservation of the region’s rain 

forests cannot ignore the indigenous movement 

as a primary ally in making the changes needed 

to conserve resources on a landscape scale. 

However, implementation of such a far-reaching 

amendment, or even the less radical proposal to 

comanage protected areas that make up a quarter 

of the region, will require integration of the 

larger indigenous movement with community 

economic initiatives. The social landscape has 

changed drastically during the past quarter century, 

with significant implications for conservation. 

The relationship of most Runa communities 

to their environment has been irrevocably altered 

by development pressures and extensive deforestation 

that have tied indigenous people more 

closely to a market economy. Simultaneously, 

the changing policy terrain has incorporated even 

remote communities into the national legal structure. 

In order to conserve the resource base 

indigenous people have depended on for generations, 

new economic models—ones that build on 

an extensive traditional knowledge and practice 

of forest management—must be created. 

As PUMAREN showed, that will require new 

governance structures. The federations that have 

played such an important part in protecting 

indigenous rights and resources have also added 

new layers to the regional social structure.


However, it remains an open question what their 

role should be in the evolution of new structures 

for sustainable development. Do new economic 

models require transformation of the federations’ 

mission and governing structure, or can new 

models bubble up through small community-level 

projects? If federations do not play a role, how 

will communities obtain the skills needed to 

carry out these projects and obtain access to marketing, 

funding, and information networks? 

Environmental NGOs must analyze more carefully 

their strategies to combine conservation and 

development. In choosing to support community 

development projects, NGOs need to think about 

what impact results will have at a wider “landscape” 

level. Where real regional impact is possible, 

higher levels of commitment and continuity 

of support may be justified. Inevitably that 

means NGOs should look at the role indigenous 

organizations play and can play in the policy 

arena. Commitment to a new vision of people’s 

parks requires rethinking past patterns of institutional 

support and helping to foster institutions 

that increase community control and capacity and 

make proposed models for indigenous management 

of territories viable. 

Endnotes 

1. The author would like to thank the directorate 

of FOIN, the members of the PUMAREN team 

(especially Jaime Shiguango), and community 

members in Huahua Sumaco and Amazonas for 

their help in obtaining updated information for 

this case study. Thanks are also offered to James 

Levy, David Neill, Matthew Perl, Jorge Uquillas, 

and Barbara Wyckoff-Baird for their comments 

on early drafts of this chapter. 

2. According to CEDI (1991, 64), 138,935 indigenous 

people lived in the approximately 6.2 million 

square kilometers of the Brazilian Amazon. 

3. For simplicity, PUMAREN is used here as the 

name for an evolving project whose first phase 

began as LETIMAREN (Legalization of Indigenous 

Lands and Management of Natural Resources). 

4. This chapter often uses Napo Province as 

inclusive of Sucumbios and Orellana provinces. 

In 1920 the uncharted region east of the Andes 

known as the Oriente was divided into four 

provinces, including Napo and Pastaza. Only in 

1989 was Napo’s northern section sliced off to 

form Sucumbios Province, and in 1998 Napo was 

further subdivided to form Orellana. 

5. Shuar and Achuar peoples, who successfully 

avoided being missionized early on, still maintain 

their unique identities and live in large numbers 

in western Pastaza and southern Ecuador. Only a 

few Zaparo speakers have survived, intermixed 

with Quichua speakers. 

6. Since 1997, indigenous organizations have 

coordinated more major protests (including two 

in 1999) with a broader base of peasant and labor 

union organizations. 

7. According to Dinerstein, et al. (1995), the 

ecoregions occupied by Runa include two 

Tropical Moist Broadleaf Forest habitats and one 

Montane Grassland habitat. All are ranked as 

globally outstanding, and of highest regional priority 

for conservation. The Sumaco region 

includes all three: #22, Napo Moist Forest 

(369,847 km 2 ) in Ecuador, Colombia, and Peru; 

#47, Eastern Cordillera Real Montane forests 

(84,442 km 2 ) in Ecuador, Colombia, and Peru; 

and #139, Northern Andean Paramo (58,806 km 2 ) 

in Ecuador and Peru.


8. The Sumaco region includes 11 Holdridge Life 

Zones (including transitional zones) ranging from 

Moist Forest to Wet Forest to Rain Forest, and 

from Tropical Premontane to Montane and 

Subalpine Forests (Watson and Silva del Pozo 

1989; Hanrahan and Pereira 1990). 

9. Ley Forestal y de Conservación de Areas 

Naturales y Vida Silvestre R.O. 64, 24 VIII 81. 

10. Until 1994 they were administered by the 

Forestry Directory (DINAF) in the Ministry of 

Agriculture (MAG). Protected areas had little 

clout vis-à-vis farm interests in MAG, so responsibility 

was transferred to INEFAN, which specialized 

in forestry. 

11. Huahua Sumaco was one of the communities 

targeted by loggers. They were the last village 

scheduled for logging, and cancelled their contract 

after discussing in PUMAREN project 

workshops the devastation other communities 

had suffered. Huahua Sumaco would work with 

the PUMAREN team as one of the three communities 

involved in the forestry enterprise that is at 

the heart of this case study. 

12. FCUNAE (Federation of United Communities 

of the Ecuadorian Amazon) operates from the 

eastern slope of Sumaco to the Peruvian border. 

To the northeast, FOINSE (Federation of 

Indigenous Organizations of Sucumbios) draws 

together Runa communities that have moved to 

this center of oil development around Lago Agrio. 

To the south is OPIP (Organization of Indigenous 

Pueblos of Pastaza). 

13. The numbers vary as communities join and 

leave. In 1993 about 60 Quichua-speaking communities 

in the upper Napo claimed membership 

in FOIN. 

14. The area was declared Bosque Protector, or 

Protected Forest, under decrees #362 and #476 

in September and December of 1987, respectively, 

fulfilling a USAID condition to finance 

road construction. 

15. For example, DINAF had done little to 

enforce its own regulations requiring management 

plans and permits when timber companies 

extracted lumber with impunity when the 

Hollín–Loreto road first opened. 

16. “The declaration of a Plurinational State 

without privatization is one of [our] principal 

demands. This is not a proposal to divide up the 

state or generate another state. It is a proposal to 

construct a decentralized political-administrative 

structure that is culturally heterogeneous and 

open to proper participatory representation by all 

social sectors, particularly those who, for reasons 

of culture, ethnicity, gender, physical condition, 

and economic position have been marginalized 

and excluded from the state’s dominant form and 

scheme of socioeconomic development. This 

implies … an institutional broadening that 

encompasses the sociocultural diversity of 

Ecuador within a new concept of development 

and citizenship that promotes rather than crushes 

Ecuador’s cultural richness and resourcefulness 

(CONAIE 1997 [Translation from Spanish]).”


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CHAPTER 4 

Lessons in Collaboration: 

The Xavante/WWF Wildlife Management 

Project in Central Brazil 

Laura R. Graham 1 


In 1990, WWF and the Xavante community of 

Etéñiritipa 2 embarked on an innovative project 

to protect the integrity and traditional resource 

base of the Pimentel Barbosa Reserve in the 

state of Mato Grosso, Brazil. The project was 

one of the first attempts to integrate indigenous 

hunters’ and Western biologists’ understandings 

of nature in order to collaboratively construct a 

game management plan and prevent overhunting 

(Fragoso and Silvius 1997). The stakes were 

high for everyone. During the past half century, 

the Xavante had come under increasing external 

and internal pressure that had begun to erode the 

ecosystems of the land they used and threaten 

the sustainability of their way of life. Conservationists 

saw that the reserve comprised the 

largest relatively intact piece of cerrado environment 

remaining in South America (Leeuwenberg 

and Robinson 1998), and offered the opportunity 

to empower the people who lived there to husband 

its resources. 

The project to promote sustainable hunting did 

not originate in isolation. It was conceptually 

linked to a broader effort called Project Jaburu 

that was conceived by an alliance of members 

from Brazil’s Union of Indigenous Nations 

(UNI), pro-Indian activists from mainstream society, 

and a Xavante culture broker from the 

Etéñiritipa community. Beginning in the late 

1980s, these parties began to design projects that 

would match local needs with the agendas of 

national and international funders. The goal was 

to help the Xavante become more economically 

self-sufficient by building on rather than sacrificing 

their cultural heritage and natural resource 

base. The hub of Project Jaburu was the Indian 

Research Center—a short-lived collaboration, 

with lead funding from the Ford Foundation, 

among UNI, a university, and the national agricul-

48 The Xavante in Central Brazil 

tural research agency. One ambitious project 

spawned by Jaburu would use funding from the 

Inter-American Foundation (IAF) to build on subsistence 

traditions by planting, harvesting, and 

processing native fruits to generate income and 

protect habitat. Another concentrated on upgrading 

reserve infrastructure, including better access 

to profitable fishing sites. WWF was asked by 

UNI to support a project to breed and raise game 

that the Xavante normally hunted. The game 

management project that eventually evolved with 

WWF did not officially fall under the purview of 

Jaburu, but the idea originated there. 

WWF representatives who vetted the initial 

request were receptive for three principal reasons. 

First, the project was located in the highly endangered 

cerrado environment. Second, the 

WWF–Brazil program, prompted by staff member 

John Butler, was looking for proposals from 

indigenous peoples that focused on the nuts and 

bolts of resource management and that appeared 

to offer potential for real engagement with communities 

on issues of conservation and sustainable 

development. The program at that time was periodically 

being asked to support other types of 

projects from indigenous peoples (e.g., for land 

titling or leadership travel) that did not directly 

support WWF’s interests in sustainable management 

of natural resources. The Xavante project 

was one of the first proposals for indigenous management 

that seemed to offer a close fit. 3 Third, 

the project appeared to have originated within the 

community itself. WWF committed funds for a 

three-year endeavor of research, planning, and 

implementation that seemed straightforward. 

As this case study will show, much was not as it 

first seemed. The route traveled has been longer 

and more circuitous than expected. The project 

teetered on the brink of disaster, but survived the 

unraveling of Jaburu because WWF was flexible 

enough to allow the project to evolve and because 

the Xavante, who disagreed among themselves on 

many things, would not let it die. It began with 

ideas for captive and semicaptive breeding of 

white-lipped and banded peccaries. These 

plans—envisioned by well-intentioned activists 

who had little understanding of Xavante attitudes 

toward animals, animal husbandry, or hunting— 

were quickly abandoned when community members 

became more directly involved. It soon 

became clear that game management was a pipe 

dream without a clearer understanding of wildlife 

population distribution in the area and how contemporary 

Xavante hunting practices affect 

species populations. Research to answer those 

questions consequently assumed center stage. 

Eventually a tripartite program for wildlife study 

and management evolved. Phase I focused on 

wildlife population surveys to determine if there 

was overhunting; Phase II on refinement of the 

data, including density estimates, to help design a 

management plan; and Phase III on implementation 

of the plan the Xavante accepted. 4 As of mid 

1998, some eight years after WWF’s initial commitment, 

communities in the reserve had finally 

approved a wildlife management plan and implementation 

was about to begin (Fragoso et al. 1998). 

Some of the challenges this project has faced and 

survived can be attributed to the cultural uniqueness 

of the Xavante; some of the challenges 

might be expected to arise in work with most 

indigenous peoples. To better understand what 

happened, this case study begins with a discussion 

of Xavante social life and the community’s 

history of interactions with outsiders while under 

the thumb of state agencies. It then looks at the 

rise of a new generation of leaders able to adapt 

to new opportunities when they arose, and the 

false starts that were made. This is followed by a 

look at the role of hunting in Xavante society and 

what made the wildlife management project different 

than the failed projects around it. It concludes 

with suggestions about what might have 

been done better and offers a brief glimpse of the 

challenges ahead. 

II. The Central Brazilian Context 

2.1 People and Land 

The Xavante, together with the closely related 

Xerente, form the central branch of the Gê linguistic 

family, one of four major Amazonian linguistic 

families. 5 Gê groups span a large area, 

stretching from the Brazilian states of Maranhão 

and Pará in the north to the southern state of 

Santa Catarina. 

By tradition the Xavante are seminomadic 

hunter–gatherers who once exploited a large territory. 

Today approximately 9,000 Xavante live 

between the Araguaia and Batovi rivers (the latter

The Xavante in Central Brazil 49 

a tributary of the Xingu) in the eastern part of 

Mato Grosso State on six reserves (see maps 4.1 

and 4.2): Areões, São Marcos, Sangradouro, 

Parabubure, Marechal Rondon, and Pimentel 

Barbosa. With 329,000 hectares, Pimentel 

Barbosa is the largest of the six reserves and currently 

encompasses five communities (see map 

4.3). Etéñiritépa (also known as Pimentel Barbosa 

and Posto Indigena Rio das Mortes in official government 

communications), is the original settlement 

from which Caçula, Tangure, and 

Pe’adzarupré have splintered since the 1980s. The 

residents of Agua Branca are refugees waiting to 

recoup their former territory in the area of the Suiá 

Missú River to the north, which will become a 

seventh reserve known as Marawaitsede. 

The landscape is cerrado: savanna, with gallery 

forest along riverbanks. Elevation is between 

300 and 400 meters. There is a relatively short 

dry season from May to August, and a rainy 

season with average precipitation of 1,750 millimeters. 

Fluctuations may be considerable, 

however, with yearly rainfall ranging 15–20 percent 

from the norm and short dry spells that 

unpredictably punctuate the rainy season 

(Flowers 1983). Most cerrado soils are moderately 

to highly acidic; low in nutrients; and high 

in aluminum, toxic to most crops. To make the 

soil arable requires considerable addition of fertilizer 

and lime. The Xavante’s former seminomadic, 

hunter–gatherer lifestyle was well 

adapted to this environment. 

Map 4.1 Location of Xavante Reserves in Mato Grosso State 

Map by John Cotter in Graham 1995. Reproduced with permission of the University of Texas Press.


Map 4.2 Xavante Reserves in Eastern Mato Grosso State 

Map by John Cotter in Graham 1995. Reproduced with permission of the University of Texas Press. 

It is best to think of the Xavante as a more or less 

integral group of politically autonomous communities 

whose members share similar cultural and 

linguistic patterns. Factionalism is pervasive 

within and between communities. Agreements 

therefore can be precarious, and village fissioning 

is characteristic of the political system 

(Maybury-Lewis 1974, 165–213). As their history 

of interactions with outsiders demonstrates, 

distinct Xavante groups act independently. 

Cooperation between communities can be 

achieved to advance perceived common goals, 

but as the next section shows, the potential for 

disaggregation and conflict is ever present. 

2.2 The Quest for Autonomy and Territory 

Xavante are known for their fierce desire for 

autonomy and self-determination. For more than 

two centuries they moved steadily westward, in 

retreat from the advancing frontier of Brazilian 

colonization. The first historical documents 6 to 

mention the Xavante date from the late eighteenth 

century and locate them in what is now the 

Brazilian state of Tocantins, in territory occupied 

either contiguously or in common with the 

Xerente, from whom they were probably indistinguishable. 

Some time in the second half of the 

nineteenth century, a number of disparate Xavante 

factions united to put distance between themselves 

and the advancing frontier by pushing 

across the Araguaia River into new territory. 

They settled in the Rio das Mortes region, in a 

village known as Tsõrepré. By the 1930s this 

coalescence had begun to fracture, and various 

groups splintered off from Tsõrepré to populate a 

broad area in what is now eastern Mato Grosso. 

These groups still shared a common aversion 

toward outsiders and any attempt to establish


peaceful contact. By the mid-1940s, however, the 

Xavante faced other indigenous peoples who were 

firmly settled to the west while the expanding 

Brazilian frontier had caught up on the east. The 

Xavante had run out of room for further flight. 

During the 1940s the Brazilian government 

stepped up efforts to colonize the area for commercial 

use. The Xavante became famous for 

their bellicosity in resisting these efforts. In 

1946, after two disastrous government attempts 

to “pacify” the Xavantes, representatives of the 

government’s Indian Protection Service (SPI) 

made the first peaceful contact. 7 The renowned 

leader Apöwe, whose descendants now reside in 

the Pimentel Barbosa Reserve, led the Xavante 

group initiating this contact. By the mid-1960s, 

all Xavante groups had established relations with 

outsiders. 8 The population, devastated by disease 

and violence, had shrunk to at least half its precontact 

size, and now numbered between 1,500 

and 2,500 people. 

Pacification, then, was not to be confused with 

submission or peace. During the 1960s and 

1970s, there were frequent clashes with Brazilians 

over territorial claims. Settlers, garimpeiros 

(mineral prospectors), and ranchers flooded into 

territory the Xavante occupied, in response to 

government fiscal incentives. Government fraud 

ceded large portions of Xavante land to colonists 

and to corporations (Garfield 1996). SPI was 

replaced by the National Indian Foundation 

(FUNAI) in 1967, large-scale monoculture (primarily 

upland rice) was soon introduced, and 

extensive tracts of savanna forest were cleared for 

cattle pasture. What is today the Pimentel 

Barbosa Reserve became splotched with large 

ranches and small squatter homesteads. 

After sometimes violent campaigns (Lopes da 

Silva 1986; Graham 1995, 37–42), different 

Xavante groups in Central Brazil convinced the 

government to recognize their territorial claims. 

By the end of 1980 all squatters and commercial 

Map 4.3 Communities in the Xavante Indigenous Reserve of Pimentel Barbosa 

Map by John Cotter in Graham 1995. Reproduced with permission of the University of 

Texas Press.


ranches were removed from areas formally recognized 

as Xavante reserves. Land disputes, however, 

persisted. As previously noted, people in the 

community of Agua Branca have won claim to a 

reserve of some 165,000 hectares, but FUNAI has 

yet to demarcate the boundaries and squatters 

have not been evicted. The Etéñiritipa Xavante 

are still pressing claim both to their ancestral village 

of Tsõrepre that lies within a ranch north of 

the Pimentel Barbosa Reserve’s current boundary, 

and to 80,000 hectares on the east bank of the Rio 

das Mortes where they had been forcibly resettled 

by the government following first contact. 

Despite considerable Xavante success in laying 

claim to land, there are other problems. Controlling 

resources and maintaining the political 

and social autonomy of the reserves are ongoing 

challenges. Mineral prospectors, cattle ranchers, 

and sportsmen continue to trespass. The proposed 

massive Hidrovia Araguaia–Tocantins project 

and the increased water traffic and pollution it 

would bring to the region pose a large-scale threat 

(Graham 1999). If completed, the waterway 

would skirt the borders of the two largest Xavante 

reserves (Areões and Pimentel Barbosa), and disrupt 

their environment and social life. In June 

1997, lawyers from the Brazilian NGO Instituto 

Socioambiental successfully obtained a federal 

court injunction on behalf of the two reserves and 

brought the Rio das Mortes part of the Hidrovia 

to a halt. That left the problem of policing the 

current borders. In 1998, as part of the game 

management project’s phase III implementation, 

WWF supplied the communities of Etéñiritipa 

and Tangure with aluminum motor boats that 

could be used for fishing and antipoaching work. 

The communities of Caçula and Pe’adzarupre 

received boats from FUNAI. 

2.3 FUNAI and the Game of State Funding 

As we have seen, relations between the state and 

the Xavante have been thorny at best. If the 

Xavante have been forced into a dialogue whose 

terms others set, they have struggled persistently 

to redefine those terms to fit their own cultural 

matrix and meet their own ends. In the mid- 

1970s, FUNAI launched “Project Xavante,” a 

colossal effort to mechanize rice farming in the 

reserve area. 9 The project seemed to respond to 

Xavante needs by justifying their claims to large 

territories that would be used to aid the national 

economy. The project also was intended eventually 

to make the Xavante economically self-sufficient 

since the traditional hunter–gatherer system 

no longer sufficed. On one level, it can be argued 

that the attempt to fold the Xavante into the 

region’s cash-based market economy was a continuation 

of the pacification policy by other means. 

But pacification now had a literal as well as a figurative 

dimension. FUNAI was attempting to placate 

Xavante leaders, such as the politically astute 

Mario Juruna from São Marcos, who were gaining 

national notoriety by spotlighting the government’s 

neglect of indigenous affairs and were 

exerting public pressure to reclaim their lands. 10 

From the late 1970s to the mid-1980s, the government 

poured money and energy into Xavante 

rice cultivation. During the 1981–1982 growing 

season in Etéñiritipa, FUNAI budgeted $19,159 

for a single 110-hectare plantation. Communities 

in what is now part of the Parabubure Reserve 

received $35,447. Budgets covered expenses for 

growing and harvesting the rice; maintaining 

motor vehicles; and paying salaries to caciques 

or chiefs, vice-caciques or “secretaries,” teachers’ 

aides, and motorized equipment drivers. 

The salary figures considerably understate what 

was actually spent on personnel costs. For example, 

FUNAI instituted a policy of giving leaders 

financial “supplements” when they visited administrative 

offices in Barra do Garças or Brasília. In 

June 1987 these supplements averaged around 

$1,300, but varied according to a leader’s status 

and the degree of pressure he exerted on FUNAI 

administrators. The Xavante earned the status of 

being the most expensive and exasperating 

Indians in Brazil. 

For Xavante leaders, who aspired to the ranchers’ 

model of agribusiness and material signs of prosperity 

such as trucks and tractors, having a project 

conferred considerable prestige, and sometimes 

wealth. By the early 1980s the possibility of being 

given leadership of a project began to fuel rivalry 

among the Xavante and spark divisions in the village. 

A community leader who obtained a project 

could supply material goods to members of his faction 

and salaried positions to a select group. For 

example, the second major split from Etéñiritipa 

occurred in 1983 when Sõrupredu departed to 

establish his own village, Tangure, that would have 

its own project resources and cattle herd.


Between 1974 and 1984, the number of Xavante 

villages mushroomed from 7 to 35—a fivefold 

increase. By 1987, over 50 independent communities 

had formed, some comprising only a single 

family. Again, as in the 1970s, when the struggle 

was to control land, the tendency toward factionalism 

was aligned with pragmatic goals. In the 

1980s the objective became access to the material 

goods and associated prestige that controlling a 

project conferred (Graham 1987). 

Growing extremely aggressive in their relations 

with FUNAI administrators, Xavante leaders 

made increasingly unrealistic demands for attention, 

equipment, and supplements. Scores of 

Xavante leaders regularly trekked to Brasília, 

and some established semipermanent residency 

in the capital and insisted that FUNAI cover 

their expenses (Graham 1995, 55–59). Their 

constant pressure on FUNAI and outrageous 

financial claims became onerous for the underfunded 

agency. Eventually FUNAI’s tap began 

to run dry, and in 1988 the agency abandoned 

the project. Xavante who had become accustomed 

to their favored status and were financially 

dependent on FUNAI felt abandoned. 

Without an SPI or FUNAI to pay heed to the 

needs that had developed in the 40 years since 

contact, leadership found itself in a novel position. 

New ways to meet their financial needs 

became a pressing issue. 

III. The Rise of Cultural Brokers 

and Project Jaburu 

FUNAI’s sudden withdrawal of support left the 

Xavante without means to acquire the Western 

goods to which they had grown accustomed. Two 

factors made it possible for Xavante leaders to look 

beyond the Brazilian government for economic and 

other support (see Graham 1995, 61–63). 

First and foremost were political changes at the 

national level that reshaped the landscape for all 

of Brazil’s indigenous peoples. The military dictatorship, 

in power since the coup of 1964, ended 

in 1986 after a thaw in repression during the early 

1980s known as the abertura. 11 In the civic space 

opened during the abertura, pro-Indian groups 

flowered (see Urban 1985) and UNI, the first 

independent organization of Brazilian indigenous 

peoples, was founded (see Graham 1995, 453). 

Return to civilian rule led to the drafting of a new 

national Constitution that included wider legal 

and economic independence for indigenous peoples. 

The 1988 Constitution enabled indigenous 

peoples to establish their own legal associations 

that could deal directly with outside funding 

agencies and NGOs. Among other things, that 

meant foreign funding would no longer have to be 

funneled through FUNAI, which had a history of 

expropriating money for its own purposes so that 

often only a trickle reached indigenous communities. 

Now money could be sent directly to indigenous 

associations. In 1988, the Xavante of 

Etéñiritipa established their own legal entity, the 

Associação dos Xavante de Pimentel Barbosa 

(AXPB). By its very name, AXPB may have 

confused outsiders. Although the association represented 

the largest community in the reserve, it 

did not speak for every Xavante community, 

much less every Xavante. 

In fact, it was led by a new kind of cultural broker 

who kept only one foot tentatively in the community, 

and without whom the hunt for funding 

would have been vastly more difficult. The need 

for a new kind of leadership had been anticipated 

by Xavante elders for more than a generation, but 

its arrival would see old problems resurface inside 

the new opportunities. The ability or inability to 

account for the changes in context would have 

important consequences for both Project Jaburu 

and the wildlife management project. 

3.1 The Role of Cultural Brokers 

In the years following initial contact with SPI, 

elders from what is now the community of 

Etéñiritipa began to see that coexistence with 

Brazilian national society would require new 

leadership skills. To prepare a new generation of 

leaders to mediate relations with outsiders, a plan 

was developed to send a number of young boys 

into mainstream society to learn Portuguese and 

the ways of the whites. 12 They were to learn the 

new terrain on which battles would be fought to 

preserve Xavante autonomy and well-being. The 

elders hoped that these boys would be community 

guides into the new era. 

In the late 1970s several boys were sent to cities 

to live with Brazilian families and attend school. 

Six went to Riberão Preto in São Paulo State. 

After only two years or so, four returned. One, 

Paulo, remained longer and worked in a shoe


factory before returning to the community in 

1984. Another, Zezinho (the son of Milton, 

leader of a major faction), lived with a relatively 

well-to-do family and stayed long enough to finish 

high school. Following their sojourns all 

returned to marry in their communities, have 

families, and become active leaders in Xavante 

social life. Of those who now reside in Etéñiritipa, 

Suptó is cacique, Paulo is vice-cacique, and Jé 

Paulo is the current president of AXPB. 

Two other boys, Cipassé and Jurandir, were sent 

to Goiânia. They stayed longer than the boys 

who went to Riberão Preto, with the exception of 

Zezhinho, partially because scholarships from 

FUNAI made it possible. Jurandir completed his 

secondary education in 1988, married a white 

woman, and chose to live in São Paulo. His ties 

with the community are irregular. In 1988, 

Cipassé married Severiá, an acculturated Karajá 

woman active in the urban Indian politics of 

Goiânia. While maintaining their primary residence 

in the city (at first in Goiânia, more 

recently in Nova Xavantina), they also kept a 

house in the reserve (initially in Etéñiritipa, most 

recently in the newly established community of 

Pe’adzarupré) for periodic visits. 

While in high school, Cipassé became interested 

in indigenous politics beyond community affairs 

in Etéñiritipa. His family had controlled 

Etéñiritipa leadership before contact with SPI, 

although men from other families also played 

important community roles. 13 Cipassé’s uncle, 14 

Warodi, became cacique during the 1970s and 

continued until being displaced by Milton in 

1985. Support for Milton was not unanimous, 

however, and members of Warodi’s faction 

aspired to regain their former prominence. 

Warodi and his brothers had groomed Cipassé to 

be a cacique. During their visits to Goiânia and 

when Cipassé visited the community, they discussed 

community politics with him and taught 

him what they knew (Graham 1995, 61–62). By 

1987 Cipassé’s role began to change in these 

family meetings. 15 He began to articulate ideas 

he was developing through conversations with 

UNI’s inspirational Ailton Krenak, pro-Indian 

activists, and eventually NGO representatives, 

ideas concerning projects that would enable the 

Xavante to maintain economic and cultural 

autonomy while living side by side with 

Brazilians. The ideas and the contacts Cipassé 

was developing persuaded the elders that he had 

found the pathway for their recently deposed faction 

to regain its authority. 

The senior members of his faction enthusiastically 

embraced Cipassé’s course and the possibility 

for new types of projects, which were 

perceived as markers of status and prowess. As 

his ideas were transmitted to the community, 

Cipassé earned substantial prestige and his faction 

began to regain some of its former status 

even though he did not live in the community. 

When the Etéñiritipa Xavante established AXPB 

in 1988 with the help of outside advisors, 

Cipassé was elected president. As support for 

Cipassé grew, support for Milton weakened. 

In May 1991, Milton departed with the members 

of his faction to join the group in Caçula after 

charges that goods purchased from sale of the 

community’s cattle had unduly benefited his kin 

(see Aparicio Gabara 1994, 24). A leadership 

crisis ensued but did not result in Cipassé’s 

becoming cacique. Nevertheless his outside 

contacts continued to lend him considerable 

community support and respect. 

In his role as a bicultural broker, Cipassé fit the 

classic portrait of an indigenous mediator who is 

an “uncomfortable bridge” between two worlds 

(Karttunen 1994). Outsiders tended to recognize 

him as the authentic “chief” and often overlooked 

other important players. Meanwhile community 

members increasingly regarded him with suspicion. 

Like other Xavante leaders who have found 

themselves in positions to control material goods 

and outside contacts, Cipassé became a lightning 

rod for factional disputes. His control over access 

to outside donors exacerbated tensions internally 

and would play a role in Project Jaburu’s unraveling. 

Closely guarding the source of his influence, 

Cipassé tightly controlled information flows. 

Donors were kept at arm’s length from each other 

so that they lost opportunities to coordinate their 

efforts by sharing knowledge of what had worked 

and what had not. According to WWF’s John 

Butler, a great opportunity to deepen future collaboration 

among donor agencies was lost. 

The lack of full information also eroded trust 

within the community. Many members became 

distrustful of any project Cipassé promoted. 

Rumors that he used the community’s name to


achieve personal goals and wealth were widespread. 

They gathered force in the vacuum of 

hard facts and were made more plausible by his 

failure to open accounting books or to facilitate 

contacts between community representatives and 

outsiders. AXPB increasingly acted independently 

of the community and its warã, the central 

decision-making forum. Eventually, Cipassé’s 

support dwindled to his core faction, which in 

1995 left Etéñiritipa to start a new village, 

Pe’adzarupré, 15 kilometers away. In 1997, 

when the association reorganized, Cipassé was 

not reelected president. 

Many of the problems with Cipassé’s leadership 

are not unique to him personally. Assuming the 

position of a bicultural mediator in contemporary 

Amazonia is fraught with pitfalls, as scholars 

have noted. 16 Cipassé is a charismatic figure 

among his generation. His vision broke new 

ground, ushering in an era of interaction with 

outsiders in which the Xavante would play a 

more decisive role. He established a precedent 

for project collaboration in which Xavante representatives 

would design and implement activities. 

He set a precedent for community members to 

assume administrative responsibilities such as 

grant writing, budgeting, and accounting. 

Without him, Project Jaburu would likely never 

have occurred. However, in the process of building 

it up, Cipassé acquired more power than the 

society sanctioned. 17 This led to his eventual 

downfall and perhaps to the lack of community 

support that helped undermine Jaburu itself. 

3.2 The Unsustainable Life Cycle of Jaburu 

The Jabiru is a stork with extensive range in the 

Amazon region. Its common name comes from 

the Tupi/Guarani peoples much farther south, and 

it is known as Jaburu in Portuguese. For Xavante, 

the bird has powerful mythological associations 

as a creator figure and is featured in several ceremonies. 

So when elders bestowed the name on 

the project, they signaled its importance as a turning 

point in Xavante relations with outsiders. It 

was, after all, the first endeavor the people of 

Etéñiritipa undertook independent of FUNAI’s 

heavy hand, and they wanted it to fly. Unlike 

government projects that were ordained from the 

top down with little indigenous input, Xavante 

actors played a major role in Jaburu’s design and 

implementation. Most of the projects associated 

with Jaburu eventually unraveled, with the exception 

of the WWF Wildlife Management Project. 

This section will explore what happened and why. 

As previously noted, Jaburu was a complex of 

projects initiated as independent endeavors. Most 

Xavante, however, conceptualized it as a whole, 

with two distinct phases (Aparicio Gabara 1994, 

127). The first phase, from 1988 to 1991, consisted 

of economic improvements to the Pimentel 

Barbosa Reserve, funded by the Denmark-based 

International Work Group for Indigenous Affairs 

(IWGIA). Cipassé and his wife opened an office 

in Goiânia and hired an engineering firm to manage 

infrastructure improvements to the reserve. A 

bridge was built to provide the Xavante with 

access by motor vehicle to fishing areas near the 

Rio das Mortes that were previously accessible 

only by foot. Salt magazines and water troughs 

were installed for Etéñiritipa’s cattle herd, and a 

vaccination program and other veterinary services 

were started. 

The second phase of Jaburu revolved around 

Xavante participation in the Centro de Pesquisa 

Indigena (CPI), or Indian Research Center. CPI 

was founded in 1987 as a collaborative experiment 

between Ailton Krenak’s UNI, several 

indigenous groups, the Catholic University of 

Goiâs (UCG), and the state agricultural agency 

Embrapa. With financial support from the Ford 

Foundation, the European Economic Community, 

GAIA Foundation, NORAD, and the Rainforest 

Action Network, a research center was built on a 

site provided by the government on the outskirts 

of Goiânia, and staffed by professional biologists, 

agronomists, foresters, activists, and other 

consultants. Among the program ideas they 

churned out were the seeds for the Xavante 

Wildlife Management Project and the Native 

Fruit Processing Project. 

A primary CPI objective was to provide Brazil’s 

indigenous peoples with Western knowledge and 

skills in applied biological sciences so that they 

could use new technologies in their reserves. 

Between 1989 and 1992, CPI and the Catholic 

University offered a training program tailored to 

indigenous students. Five students were allowed to 

bypass the vestibular, an admissions exam that 

effectively reinforces class and racial divisions in 

Brazil’s post-secondary schools, and were admitted 

to UCG’s four-year undergraduate law program. 18


Seven students from diverse indigenous groups, 

including Kaingang, Krenak, Surui, Tikuna, 

Terena, Yanomami, and one young Xavante man 

from Eteñiritipa, Jaimiro, participated to receive 

training in wildlife management. 

The natural resource program, primarily funded 

by $190,000 from the Ford Foundation, focused 

on five areas. Wildlife management included 

topics such as population surveys of target 

species and husbandry in captivity and semicaptivity. 

Freshwater ecosystem development 

included aquaculture of native fishes and 

shrimps. The third involved conservation and 

cultivation of native plants. The fourth would 

develop technologies for collecting, processing, 

and marketing native fruits and plant essences. 

Finally, regenerative agriculture encompassed 

techniques for soil recuperation, organic fertilization, 

and planting (Aparicio Gabara 1994, 128). 

The natural resource program encountered many 

challenges. Some observers believed that it fell 

short of its objectives because, among other 

things, training was inadequate and participants 

had difficulty coping with the new demands they 

faced. 19 According to Ailton Krenak, however, 

the program was a success. It was the first initiative 

of its sort and offered an unprecedented 

opportunity for indigenous participants to learn 

about wildlife management from Western 

experts. All the students had the chance to learn 

Portuguese, and acquired important skills from 

the experience of interacting with members of 

other indigenous groups and Brazilian national 

society. The Xavante student, Jamiro, for a time 

applied what he learned as a research assistant to 

the WWF-sponsored wildlife management effort 

in Etéñiritipa. Eventually he chose to become a 

health care provider. The Goiânia facility itself 

closed at the end of 1992 when the CPI decentralized 

in order to implement programs in 

reserves along the Upper Jurua River in Acre, 

among the Krenak of the Rio Doce Valley in 

Minas Gerais, and among the Tukano of the Rio 

Negro in Amazonas. 20 

Perhaps the biggest disappointment associated with 

Jaburu, however, is what might be called the 

“Native Fruit [Misad]Venture.” In 1991 AXPB 

headquarters moved to the Brazilian town of Nova 

Xavantina, some 250 kilometers from the Pimentel 

Barbosa Reserve, to be closer to the community 

yet remain in a commercial center. It was at this 

time that IAF and WWF initiated support for two 

programs perceived to be complementary. IAF 

directed funding toward developing activities 

related to native fruits. WWF pursued the wildlife 

management endeavor. As we will see, the outcomes 

for the two efforts were markedly different. 

The idea for the native fruit venture grew out of 

CPI’s brainstorming. It seemed a viable way for 

the community to earn high profits with relatively 

low production levels from a renewable 

cerrado resource. Cipassé flew to Europe to 

assess the prime target markets and found interest 

in fruits processed and sold by Brazilian 

Indians was much greater than anticipated 

(Aparicio Gabara 1994, 129). IAF funds were 

used in 1993 to turn an abandoned ranch near 

Etéñiritipa into a fruit-processing plant. The 

facility was a white elephant and never operated, 

for reasons that will be discussed below. 

Using European Community (EC) funds totaling 

$100,000, a state-of-the-art processing plant was 

built in Nova Xavantina the next year. The 

switch was justified by the fact that harvests from 

the reserve were low and, to operate the plant 

economically, at least 70 percent of the fruit 

would have to be procured locally (Aparicio 

Gabara 1994, 131). The town’s larger population 

would also provide a larger pool of labor. 

Perhaps this was a clue that something was 

wrong with the idea, that it had failed to enlist 

enthusiastic support in Etéñiritipa itself. EC 

funds were also used to remodel AXPB’s headquarters, 

including a cultural center and guesthouse 

so community members would have a 

place to stay in town. The fact that funds were 

spent on infrastructure rather than pressing needs 

such as training, for example, may also have 

been a warning that something was awry. 

The enterprise was to process a number of 

cerrado fruits, including baru, jatoba, murici, 

araticum, buriti, macauba, and piqui. Like the 

low-tech plant in the reserve, however, this facility, 

too, never became operational. An independent 

evaluation in early 1995 would show that no economic 

feasibility study had been carried out to justify 

the investment in the factory. And it became 

obvious that members of AXPB and the CPI staff 

lacked the training to properly process, package, 

or market the fruits.


With Xavante unable to manage processing and 

packaging or even to provide adequate raw materials 

and labor, there can be no doubt that the 

fruit-processing venture was a failure. Several 

factors help explain this and provide contrast for 

what eventually happened in the wildlife management 

project. One reason the effort never 

took off was the failure to root the project in the 

cultural dynamics of the community. It was a 

basic flaw in project design that no one wondered 

what impact the gender division of labor in 

Xavante society would have on the enterprise. 

The fruit project placed an unreasonable burden 

on women, the collectors and processors of food 

in this society. Xavante women have the least 

free time yet were expected to bear the brunt of 

this new labor. Many later problems might have 

been anticipated if women, who were to be principal 

actors in implementing the project, had 

been asked to participate in designing the project. 

Although women were enthusiastic at first about 

the money they would generate, their enthusiasm 

declined in tandem with the failure of cash flows 

to materialize quickly (Aparicio Gabara 1994, 

129). No one explained beforehand that the market 

economy demands major start-up costs and 

labor investments before a profit can be realized. 

The women also expected other immediate 

rewards for their labor, such as clothing. As 

motivation waned, it became clear that workers 

were not maintaining the sanitary requirements 

for handling fruits such as pequi. They were also 

not collecting sufficient surplus to gear production 

to scale. The fruit shortage was exacerbated 

because few of the trees that were supposed to be 

planted for harvesting were in fact planted. All 

of this implies that the women and the community 

itself never felt the project belonged to them. 

Another problem was that the project rapidly 

became hooked on relatively high levels of technology 

without concomitant technical support. 

One observer noted that no one involved in the 

enterprise had experience in operating such a facility. 

Rather than slowly developing processing and 

marketing skills at a level commensurate with 

what could be produced by community members 

with the available resources, project designers separated 

ends from means. They too quickly aspired 

to acquire the elaborate infrastructure for success 

without having a clue about how to attain or sustain 

it. Echoing what had happened in FUNAI’s 

rice projects, once again acquisition of material 

goods as a sign of status, in this case the fruit-processing 

factory, became an end in itself. 

After 1994, the IAF and the EC withdrew support 

for the project. The processing plant 

remains unused, a monument to an appetite for 

material goods and to overwhelming ambition. 

The problems that undermined the fruit project 

stem from lack of consistent monitoring by funders, 

technical support, background information, 

and dialogue among all the parties involved. 

IV. The Wildlife Management 

Project 

Whereas IAF and EC funds supported implementation 

of technological innovations and infrastructure, 

WWF funding primarily supported 

research. This began in 1991 when Frans 

Leeuwenberg, a wildlife biologist contracted by 

the CPI, initiated fieldwork designed to uncover 

why the reserve’s game populations seemed to be 

declining. 21 Early on, the Xavante had made it 

very clear that they were not interested in raising 

animals in captivity, so Leeuwenberg’s work 

focused on understanding the current natural 

resource base and how this aspect of it could be 

improved and managed by the Xavante. 

4.1 The Role of Game Hunting in 

Xavante Society 

To understand the dynamics of Xavante game 

hunting, one must first appreciate how central 

wildlife has been and is to Xavante life. 

Following “peaceful” contact, the SPI had tried to 

transform the Xavante into sedentary farmers (see 

Flowers 1983, 218–225; Maybury-Lewis 1974). 

The Xavante, however, abhorred intensive agriculture. 

The few crops they did plant—principally 

maize, beans, and squash—played a minor role as 

“bonus” foods used in celebrations (Maybury- 

Lewis 1974, 48), and could be sown and left 

untended while the group took off on trek. Wild 

roots, nuts, fruits, and vegetables formed the core 

diet, and fresh game, smoked meats, and fish were 

the most coveted foods. Game was and still is a 

centerpiece for many ritual occasions. 

Meeting these subsistence and cultural needs has 

taken several forms. First is dzö mori, or trekking. 

Traditionally Xavante treks were hunting and


gathering expeditions that radiated out from a 

semipermanent base village and lasted from six 

weeks to three months. Treks took place in the 

rainy as well as the dry season (Maybury-Lewis 

1974, 52–59). Trekking bands included entire 

extended families; women focused on collecting 

fruits and plants while men focused primarily on 

hunting and fishing.22 The elders planned these 

treks so that the community might cover certain 

terrain and exploit certain resources. The area that 

a group was able to cover during a year’s wanderings 

was considered to be its territory (Maybury- 

Lewis 1974, 53). Each community held 

proprietary rights in common over the area and its 

products, but did not recognize specific boundaries 

between its own territory and that of other groups. 

“[Xavante] felt free to wander out of ‘their own’ 

territory if they were prepared to risk a clash with 

other [Xavante] groups, who might resent the 

intrusion” (Maybury-Lewis 1974, 53). 

Of central Brazilian groups in the 1950s, the 

Xavante were probably among the most nomadic 

(Flowers 1983, 53). The Pimentel Barbosa group 

followed in this case study spent as much as 

eight months of the year on trek (Maybury-Lewis 

1974, 44–45). Around 1970, they began to shift 

from trekking to intensified rice and manioc production 

(Flowers 1983, 226). Families continued, 

however, to take short treks of up to three 

weeks or so until the 1990s. Leeuwenberg 

(1994, 11) thought family hunts seemed to 

increase between 1991 and 1993, while individual 

hunting declined. This was apparently a blip 

since family hunts stopped after 1994 

(Leeuwenberg, personal communication). Today 

the trekking pattern has all but disappeared 

because of the significant reduction of available 

lands and the growing importance of consumer 

goods. In the smaller Xavante reserves, such as 

São Marcos and Sangradouro, trekking diminished 

even earlier. 

Despite the decline in trekking, hunting continues 

to be very important in the diet and essential 

to social life. Hunting is fundamental to Xavante 

identity, particularly for males. Men think of 

themselves as hunters. Little boys are encouraged 

to play at hunting, preparing for their future 

role. Fathers craft small bows and arrows for 

their sons, who tote them around for target practice 

on small lizards, rodents, and inanimate 

objects. Boys begin their career as serious 

hunters by shooting birds with sling shots. In the 

bachelors’ hut, boys between the ages of 10 and 

15 accompany the older men on organized hunting 

trips. By watching their seniors, they learn 

how to stalk particular kinds of animals, and to 

butcher, smoke, and carry the kill. While older 

men have probably always been more proficient 

than the young, today’s youth know much less 

than before about habitat and tracking, and elders 

openly voice concern that knowledge needed to 

carry on hunting traditions is being lost 

(Leeuwenberg 1994, 37). 

Today most men hunt with .22 rifles, which were 

introduced during the pacification. Some 15 to 

20 percent of hunters still use bows and arrows 

(Leeuwenberg 1994, 32). In his research 

Leeuwenberg notes that, contrary to speculations 

by some conservationists, introduction of rifles 

did not stimulate overhunting by the Xavante. 

Nevertheless he observes that 20 to 25 percent of 

animal kills from .22 rifles are not used. These 

are principally large animals such as tapirs, deer, 

and peccaries that are wounded but escape to die 

later in the bush. A man ceases hunting and 

returns to the village when he has obtained the 

maximum weight that he can carry; if he is not 

far from the village, he may leave his kill and 

fetch help. 

Meat provides a significant part of the diet in all 

Xavante communities, and game is, without 

doubt, the most desired food. In fact, the 

Xavante language has two ways to express 

hunger. One concerns food in general (mram di); 

the other specifies meat or fish (toro di). 

According to Leeuwenberg (1994, 16), hunted 

game in 1993 provided approximately 85 to 90 

percent of the animal protein in the diet; domesticated 

chickens, fish, turtle, and turtle eggs supplied 

the remainder. In the years 1991–1993, 

Xavante adults consumed 144–255 grams of 

meat per day (Leeuwenberg 1994, 18). 

Xavante use 65 percent of the gross weight of a 

hunted animal; only claws, bones, and the contents 

of the stomach and intestines are not eaten 

(Leeuwenberg 1994, 17). The brain is considered 

a delicacy appropriate for elder women. 

When a man returns from a hunt, he gives his 

share of the kill to his wife or mother (if he is 

unmarried), who then distributes it to kin and


affines to whom she is obliged to share meat. 23 

The practice known as da-niwari entails asking 

for meat or fish from women whose husbands 

and sons have returned from a successful hunt. 

Time allocation studies conducted in 1976–1977 

show that Xavante men spent an average of 1.06 

hours per day hunting (Flowers 1983; 231, 

233). 24 This accounted for 14 percent of the time 

they devoted to subsistence activities. Data from 

1994 indicate that men spend more time hunting 

now, some 25.7 percent of their subsistence 

activity (Santos, Flowers, Coimbra, and 

Gugelmin 1997, 553, especially table II). When 

hunting and fishing are combined, the change is 

even more striking. In 1976, men hunted or 

fished for 30 percent of the time they devoted to 

subsistence activities. In 1994 it was 60 percent. 

With the decline of trekking, other forms of hunting 

have expanded. Individual hunting is the 

most common, although not the most productive 

(Flowers 1983, 231). Xavante men always carry 

their guns and are alert to signs of game when 

going to and from their gardens, on any sort of 

errand, and even while riding in motorized vehicles. 

In 1976, Flowers found that only 21 percent 

of hunts involving up to three men were 

successful (meaning some game was bagged), 

and the average share of dressed meat per hunter 

was 1.7 kilograms. 25 

Collective hunts may include as few as four men, 

and often include many more, sometimes nearly 

the entire adult male population of a community. 

Xavante maintain that collective hunting is more 

productive than individual hunting, and the study 

by Flowers (1983, 232) showed this has been the 

case. The documented success rate of collective 

hunting in 1976 was 67 percent, and the average 

share for each hunter was 4.7 kilograms of 

dressed meat per day. The higher figures may be 

attributed to the fact that among the most commonly 

taken game animals are white-lipped and 

banded peccaries that run in large herds of 15 to 

40 in the cerrado. An individual is lucky to shoot 

one or two, but a large number of hunters can 

often head off the herd and give more men the 

chance to shoot. On the other hand it is also true 

that a group can fail to encounter any peccaries, 

and everyone returns empty-handed (Flowers 

1983, 232–233). Elders from the patrilineage 

known as the “peccary lineage” (uhö and uhöre) 

recall that lineage leaders once had the power to 

summon peccary herds (Giaccaria and Heide 

1972, 111–112; Flowers 1983, 236). This 

knowledge may have been lost, although several 

elders suspect that some individuals still possess 

certain powers. 

Flowers observes that collective hunting may be 

most efficient when there is high dependence on 

herd game in relatively open country like the cerrado, 

where visibility extends a considerable distance 

(1983, 235). Leeuwenberg’s recent data 

partly supports this proposition (1994, 17; also 

Leeuwenberg and Robinson 1998). He finds that 

the two kinds of peccary—white lipped and 

white collared—constituted 48.39 percent of 

game kills between 1991 and 1993. Nonherd 

species accounted for a substantially lower proportion: 

anteater (tamandua bandeira), 19.96 

percent; deer (cervo do pantanal, veado cameiro, 

veado mateiro, veado catingueiro), 14.21 percent; 

armadillo (tatu canastra, tatu peba), 10.86 

percent; tapir, 4.29 percent; unspecified, 2.29 

percent. However when percentages are calculated 

for volume or biomass, Leeuwenberg 

(1994, 17; 1997a, 1997b) finds that the ratios 

reverse dramatically. Nonherding species— 

mostly deer (28.81 percent), anteater (18.65 percent), 

and tapir (18.05 percent)—account for 76 

percent of the total volume of game meat, while 

peccaries account for only 30.27 percent. This is 

a more accurate picture of the relative importance 

of species the Xavante rely on. It also reflects 

Xavante food taboos. Capybara, anaconda, and 

savanna fox (which was consumed in the past) 

are not eaten despite being readily available in 

the area. 

Men enthusiastically engage in collective hunting 

trips, some of which form the backbone of 

important ceremonials. For example prior to the 

adaba, or wedding ceremony, the groom’s male 

kin depart on a hunt known as da-batsa that lasts 

up to three weeks. The hunt ends when family 

leaders deem that game in sufficient variety and 

quantity has been obtained to make an honorable 

offering to the bride’s mother.26 When the 

hunters return to the village, the groom, decorated 

with ceremonial body paint, carries a huge 

basket piled high with as much as 150 kilos of 

smoked meat across the plaza to his bride’s 

household. In one ceremony, the net weight of


game hunted over an eight-day period was 487 

kilograms (Leeuwenberg, personal communication). 

An alternative to the da-batsa is the 

tsérére, a one-day communal wedding hunt 

involving all adult males in which the meat 

exchanged is raw rather than smoked.27 The dabatsa 

is much preferred, but the tsérére can occur 

in special circumstances and, in recent years, is 

increasingly common (Leeuwenberg, personal 

communication). Game must also be supplied 

during the extended wai’a ceremony that places 

adult men in contact with the spirit world from 

which they derive power (see Valadão nd; 

Aparicio Gabara 1994, 36–38). 

Because large amounts of game are needed in 

these ceremonials, hunting parties sometimes 

trespass onto privately held lands. Xavante men 

consider lands on the eastern side of the Rio das 

Mortes, where some 80,000 hectares are in dispute, 

to be good hunting territory. In some cases 

this has led to hostilities with landowners. 

Another type of collective hunt, known as du, 

occurs during the dry season. Men set fire to the 

parched grass and undergrowth to drive out game. 

The hunt usually lasts one day and involves most 

of the adult and adolescent men, and sometimes 

boys who reside in the bachelors’ hut. Prior to 

departing in the morning, participants decorate 

themselves with body paint and assemble in the 

warã, or central plaza, to sing a special song 

known as du’u ño’re. The “owner of the hunt” 

(aba tede ’wa) articulates the plan for the day in a 

formal speech. Men depart together in a fever 

pitch, either by foot or in trucks. Once the 

hunters reach the designated starting point, they 

assemble to hear the “owner of the hunt” reiterate 

the plan. Two designated seniors, one from each 

marriage group, or moiety, set off at a trot carrying 

torches in opposite directions. They periodically 

pause to set the grass afire in a large arc that 

is fanned by arid breezes. The assembled hunters 

then pursue the fleeing game that head to damp 

areas and watering holes for safety. Men use distinctive 

calls to notify others of their kill and to 

summon help. Women often follow behind the 

flames, collecting forest products such as palm 

hearts from the charred open fields. 

In recent years Xavante became overly reliant on 

these game drives, using them throughout the dry 

season rather than at the end as traditional knowledge 

prescribes. Food supplies and animal habitats 

consequently have suffered (Leeuwenberg 

1994, 32, 41). One result of the wildlife management 

plan the Xavante would eventually draft 

would be to return to the elders’ methods of determining 

appropriate times for fire drives. 

4.2 Threats to the Game Supply 

Paying attention to elders’ knowledge is crucial 

for replenishing wildlife because changes 

throughout the Rio das Mortes region have significantly 

affected game populations. A study 

by the government rural extension agency 

Empresa de Assistencia Tecnica e Extensão 

Rural (EMATER) paints a dismal picture of the 

region’s habitat. Farms larger than 100 hectares 

account for more than half of nearby land. 

Those 100–500 hectares in size account for 

32.25 percent of land in the two districts that 

contain or adjoin Pimentel Barbosa, and farms 

larger than 500 hectares account for another 16 

percent (EMATER 1989). 

Eighty to 85 percent of the surrounding lands 

have been deforested. Ranchers cleared large 

areas for pasture or for monocropping soybeans 

or upland rice. They also introduced several 

exotic feed-grasses—such as Brachiaria spp., 

Rhynchelytrum repens, Andropogon ssp., 

and Panicum maximum—that are extremely 

aggressive and are displacing natural flora 

(Leeuwenberg 1994, 4). In addition to commercial 

activities adjacent to the reserve, intrusions 

for timber or mineral extraction or for poaching 

have also seriously disrupted game populations 

within Xavante territory. 

The Xavante’s increased sedentariness and 

changed hunting patterns have also affected the 

game supply. Reliance on subsistence crops that 

require constant attention and on Western medicine 

and other consumer goods have made the 

Xavante reluctant to leave their villages for prolonged 

periods. Treks have given way to intensive 

hunting in areas close to villages and have 

lead to overexploitation there. 

During phase one of the project, data collection 

focused on identification of hunting ranges and the 

number of each species taken. By extrapolating 

information from several kinds of data, estimates 

were made about productivity rates that could be 

used to measure harvest sustainability. For


1991–1993, Leeuwenberg found that the 

Etéñiritipa Xavante hunted only some 65,000 of 

the reserve’s 329,000 hectares. He reports that 

“from February to October [1991], the Xavante 

had 82 hunting days, of which 85 percent [took 

place] in an area” within 25 kilometers of the village 

(Leeuwenberg 1994, 7). This badly disturbed 

animal populations, and several species basic to 

the diet risk local extinction. 28 Corollary to the 

overhunting near settlements is the underuse of 

large portions of the reserve, which has political 

consequences. Trekking parties once helped 

police the reserve’s borders, which are now left 

more unguarded and open to invasion by squatters. 

Cattle ranching might seem to offer the Xavante 

a potential alternative to hunting, and indeed it 

was government policy for more than 30 years to 

encourage such a shift. Xavante, however, have 

little interest in the care of domestic animals. 

Each community has its own cattle but seems to 

prefer to hire Brazilians to care for the herds. 29 

Xavante think of their cattle as assets that can be 

converted to cash to repair a truck or buy some 

durable good, and as an emergency food reserve, 

rather than as a permanent source of animal protein. 

Senior men are minimally involved in animal 

husbandry. When game is scarce and the 

community “is hungry for meat,” they kill and 

butcher cattle as needed. But cattle are not used 

to substitute for hunted game in ceremonies. 

Unfortunately this cultural resistance to cattle 

does not mean that the reserve has escaped from 

the ravages of ranching unscathed. Leeuwenberg 

(1992, 5) reports that approximately 10 percent 

of the reserve’s natural habitat has been severely 

degraded by cattle since the 1970s. 

4.3 Taking Ownership of the Wildlife 

Management Project 30 

When the project began in 1991, WWF funds, 

most of which were supporting Leeuwenberg’s 

salary, were routed through CPI. When CPI’s 

Goiânia facility shut down, WWF funds went 

directly to AXPB. From this point on, WWF’s 

interactions with AXPB were not mediated. The 

Xavante became more involved in the project as 

they began to administer its funds and as they 

worked alongside the field researcher. 

Establishing baseline data to determine the sustainability 

of animal harvests proved to be a complex 

undertaking. Believing that the project had 

originated inside the community and that the 

community would wish to continue monitoring 

once his work was complete, Leeuwenberg 

trained community members in appropriate datagathering 

methods. This ensured that the accumulated 

knowledge of experienced hunters, who 

were also phenomenal trackers, would be tapped, 

but it also limited what kinds of methods could be 

used. Trained observers would monitor hunts, 

record the sex and number of kills and where they 

occurred, and collect the lower jaws to determine 

age through tooth wear. All animals brought into 

the village were recorded, but not all skulls were 

described since the Xavante break open the cranium 

to remove the brain. Each of these measurements 

contained hidden assumptions. For 

instance, the sex ratio would show how much of 

the population was female and producing offspring, 

while the age structure would allow one to 

refine the projection since the likelihood of reproduction 

and survival varies with age. A preponderance 

of young animals in long-lived species 

would support the likelihood of overhunting. The 

problem was that not enough is known about the 

life cycle of some species to have reliable baseline 

data for drawing conclusions. This was complicated 

by gaps in new data. In addition to the 

incomplete skull samples, the Xavante did not 

save the uteruses of killed females so that a valuable 

clue to reproductive history was lost. 31 

Establishing population densities per square kilometer 

and comparing them to game taken over 

the three years of the study would have negated 

some of these difficulties. WWF and the 

Wildlife Conservation Society (WCS), which 

contributed some funds, were highly interested in 

obtaining density data, and in 1993 Leeuwenberg 

tried to comply, plotting out transects of known 

lengths in four different habitats in order to 

obtain census data. Three problems surfaced. 

The number of encounters with game per transect 

was too low to be statistically significant; several 

transects flooded during the rainy season and 

could not be sampled; and finally, the Xavante 

sampling the trails had no cultural precedent for 

tracking game without shooting it. Ultimately, 

the Xavante found that censusing was not, for 

them, a viable method of data collection. 

Most studies of this kind in fact have difficulty in 

obtaining a productivity estimate at the site that 

matches the accuracy of data for harvested ani-


mals. Because of such difficulties, J. Robinson 

and K. Redford developed a model (the R&R 

model) to fill the void (Silvius 1998). They 

“abstracted all reliable values on density and 

reproductive parameters from the literature for 

the principal Neotropical game species, calculating 

a maximum average potential production for 

each species and estimating the proportion of 

production that could be taken to maintain sustainability.” 

Using the R&R model for a baseline 

to compare data the community gathered, 

Leeuwenberg concluded that marsh and pampas 

deer, tapirs, and anteaters were being overhunted. 

In part because of internal community factionalism, 

WWF received no proposal for the 

1994–1995 period. Instead the community 

requested time to think about the project. 

Funding was suspended and WWF conducted an 

interim evaluation. This evaluation kept the project 

on the table and provided a way to get it 

restarted in the event that the community 

expressed interest, which it did. Funding 

resumed the next year. 

Based on the interim evaluation, conducted by 

wildlife biologist José Fragoso, the original proposal 

was revised to test for the existence and 

sustainability of a source–sink system of game 

supply. In a reserve the size of Pimentel Barbosa 

in which large areas were unhunted, game populations 

might be depleted around the home village 

but be periodically renewed by animals 

moving in from undisturbed areas of higher 

population and production. If this scenario is 

operating, population density should increase 

with distance from the village, and sex- and agedistribution 

ratios should stabilize. If population 

densities and ratios for a particular species are 

higher near the village, then one can presume 

that the species is undesirable to hunters or that 

gardens or some other feature of the local habitat 

(such as removal of a predator) have enhanced its 

fitness. If populations are low or sex and age 

ratios are skewed everywhere, one can presume 

that the species is being overhunted. 

A second research phase was proposed, which 

would culminate in the drafting of a wildlife 

management plan. Leeuwenberg’s data and 

input from the community would be analyzed 

more rigorously to see whether the expected 

skewing of age structure and sex ratio occurred 

as hunting moved away from the village. 

Additionally, a more sustained effort would be 

made to assess relative population densities. 

Equal numbers of transects would be set at three 

distances from the community and sampled for 

game tracks to measure seasonal variation. 

Although there might be gaps in any one set of 

data, comparing sex and age ratios and densities 

to look for convergent trends would offer a more 

accurate picture of what was actually going on. 

A second research biologist, Manrique Prada, 

was hired under Fragoso’s supervision to manage 

field tracking. 

The incorporation of new personnel and perspectives 

made it essential for the community to feel 

that continuity was maintained and that local 

control of the project had not been lost to the 

scientists and NGO. Leeuwenberg’s ongoing 

participation and his skill as a facilitator would 

prove to be particularly valuable. Early on, he 

had established the precedent of reporting regularly 

to the warã, or men’s council, and was 

especially adept in translating Western scientific 

knowledge into language that the Xavante could 

understand. Xavante men became engaged in an 

ongoing dialogue over hunting and resource 

management, which would over time lead to the 

revitalization of conservation practices that were 

in danger of being forgotten. 

This task, however, was about to become even 

more complicated. The interruption of WWF 

funding during 1994–1995 coincided with growing 

turmoil in the community concerning 

Cipassé’s leadership, so the Xavantes were distracted 

from the project. This leadership crisis 

made it difficult for WWF to negotiate with 

AXPB about how to proceed. WWF recognized 

that Cipassé no longer had full community support, 

yet was bound to negotiate with him 

because he was still president of the association. 

Community members, who wanted the project to 

continue, faced a dilemma as well. They either 

had to remove Cipassé from office or form a new 

association. WWF had made considerable 

investment in the husband-and-wife team of 

Cipassé and Severia as community leaders and 

project mediators. It had, for example, funded 

their participation in training seminars in project 

planning and management. Yet at this point the 

WWF representative recognized that other com-


munity members would need to acquire administrative 

skills if the project was to move forward. 

Project scientists and consultants were also caught 

in the crossfire of factional pressures. The recently 

arrived Prada was in a precarious position because 

Cipassé had hired him and controlled the issuing of 

his paychecks. Leeuwenberg’s situation was somewhat 

better since CPI had hired him with WWF 

funding. He had also spent enough time working 

alongside the Xavante to develop strong relationships 

with a broad cross-section of the community. 

Nonetheless conflicts with AXPB and its leadership 

would cause him to leave the project for a 

time, between January and August of 1997. 

In navigating this turmoil, the team of biologists 

confronted the fact that scientific method and 

practice could not be ends in themselves but had 

to be adapted to the social context in which they 

were being applied. Some methodological rigor 

had to be sacrificed to ensure the Xavante’s participation 

in the study so they could take ownership 

of it. The community wanted to know why 

particular methods were being used so they 

could evaluate the validity of the findings. 

During the second phase of data collection, communication 

about the science was sometimes 

unclear and community support more lukewarm, 

which only intensified the dispute around 

Cipassé’s stewardship. 

When the community split in 1996 and Cipassé’s 

family left to establish a new village, the project’s 

future was clouded. It had been envisioned 

and funded as a collaborative endeavor between 

WWF and Etéñiritipa. Now WWF found itself in 

the awkward situation of having to deal with the 

leader of the community organization authorized 

to handle funds who was no longer part of the 

community. Cipassé had so tightly controlled 

AXPB that other leaders had little or no familiarity 

with the legal requirements and even the routine 

administrative affairs of the organization. 

Only Cipassé knew, for example, with which 

legal office the association and its officers had 

been formally registered. 

At this point, WWF asked an anthropologist who 

had worked in the community since 1981 to conduct 

an ethnographic evaluation of the situation 

and assess the Xavante’s perspectives on the 

project to see if it could be revived and set on 

course. The 1996 evaluation clarified the need 

for AXPB’s reorganization and suggested ways 

to involve the community in the development of 

a management plan. The evaluation process also 

brought outsiders with different project roles into 

contact and created a dialogue across areas of 

expertise. This helped improve communication 

among all participants and furthered community 

understanding. Better coordination earlier might 

have avoided or diffused some of the difficulties 

the project had encountered. The WWF project 

director left the Brazil program in January 1996 

but continued to monitor the project until his 

replacement took over in the fall. 

As Phase II data collection neared completion, it 

became clear that reorganization of AXPB would 

be essential to drafting and implementing an 

effective wildlife management plan. Assisting 

community members to meet the legal obligations 

involved became a major priority. New 

leaders, such as Suptó, Paulo, and Jé Paulo, 

needed training in how to meet the legal requirements 

for holding a valid election, and in the 

administrative and financial skills to manage the 

association and the project. 

In March 1997 new elections were held. 

Organizational control passed into the hands of 

leaders from Etéñiritipa, and Jé Paulo was elected 

president. Although Cipassé no longer retained 

an influential position, he agreed to collaborate in 

the WWF project, with the understanding that his 

community would share in its benefits. 

In July 1997 WWF proposed that the team of 

biologists led by Fragoso would draft a management 

proposal. While this proposal would be 

based on scientific data and analysis, the team 

agreed that fundamental ideas for the plan must 

originate from within the community if they were 

to be implemented effectively. 

Following an August 1997 meeting between the 

biologists and community members in Etéñiritipa, 

Leeuwenberg held follow-up sessions to clarify 

the scientific data and research conclusions with 

the Xavante. The data indicated that the anteater, 

armadillo, and marsh and pampas deer were at 

risk, while the tapir was “vulnerable.” Tracking 

data suggested possible source areas for some of 

the species. Because the natural history was 

unclear or the supply source was outside the 

reserve for the anteater and the armadillo, it was 

recommended that they not be hunted until more


was known or the populations grew. A ban was 

also proposed for pampas deer because their numbers 

seemed unusually low. Marsh deer, tapir, 

and white-lipped peccaries could be hunted in 

distant source areas only, allowing their numbers 

to recover in depleted areas. This would shift the 

source–sink system from one based on distance 

from the village to a rotational system that utilized 

the whole reserve. Finally, collared peccary, 

brocket deer, and smaller species could be hunted 

everywhere because they were in abundance. The 

draft plan also recommended constant monitoring 

in open and banned areas to control for natural 

declines in populations and to shift hunting when 

tracking data indicated numbers were in marked 

decline. There would be no need to determine 

and set sustainable harvest levels because hunting 

would shift before populations were depleted. 

The Xavante discussed these proposals for several 

months and began to think, in their own 

ways, about how to diminish hunting’s impact on 

game populations and how to recover the threatened 

populations. In November, the hunters 

offered their plan. Rather than general hunting 

bans for any species, they proposed that specific 

areas be designated as temporary wildlife 

refuges, perhaps because this model fit in with 

the traditional system of rotation inherent in 

trekking. They also proposed to intensify fishing 

during the dry season, and underlined the need to 

monitor reserve borders against intruders. 

At a two-day meeting held in Brasília in December 

1997, representatives from Tangure and 

Caçula met with the leaders from Pe’adzarupré 

and Etéñiritipa. All four communities agreed to 

participate in the management plan and to designate 

three refuges totaling more than 100,000 

hectares. They also agreed to intensify dry-season 

fishing, reinstate traditional burning patterns at the 

end of dry seasons to limit collateral damage, and 

collaborate on border monitoring. 

Intervillage rivalries resurfaced, however, when 

the time for formal ratification came. The three 

research scientists—Fragoso, Leeuwenberg, and 

Prada—traveled to the reserve in May 1998 

with the new WWF representative to present a 

written plan and an agreement to be signed by 

representatives of the four communities. 

Representatives from Caçula and Pe’adzarupré 

did not attend, perhaps to register their objections 

to the meeting’s location in Etéñiritipa 

(Leeuwenberg, personal communication). After 

holding a meeting with the leaders from 

Etéñiritipa and Tangure, the three scientists 

traveled to Caçula and met its leaders. In June, 

a leader from Caçula contacted WWF and proposed 

that representatives of his community 

would travel to Brasília to sign the agreement. 

The project is likely to continue being buffeted 

by intervillage rivalries and the politics of power 

and influence within the reserve, although the 

issues in dispute may change as plan implementation 

evolves. Given Xavante factionalism such 

a situation is not surprising; indeed, the challenge 

of forging a consensus among all of the reserve’s 

communities has been present from the beginning 

(Graham 1992). Factionalism makes implementation 

difficult but it does not preclude the 

majority of the reserve’s residents from participating 

in moving things forward. As in past 

endeavors, collaboration is likely insofar as 

members of the different communities perceive 

the plan to be in their interests. 

V. Conclusions 

WWF’s involvement with Etéñiritipa coincided 

with two turning points in the community’s history. 

First was the termination of FUNAI’s rice 

project and the withdrawal of most of the agency’s 

ancillary support. Taking advantage of changes in 

national law affecting indigenous peoples, the 

Xavante turned to new sources of outside support 

such as NGOs. WWF was among the first private 

entities to collaborate with the Xavante. 

The second event was the Xavante’s mounting 

concern about the dwindling supply of game in 

the Pimentel Barbosa Reserve. Alternative ways 

to provide dietary protein had either been unsuccessful 

(cattle ranching) or were rejected (raising 

animals in captivity). The Xavante wished to 

discover ways to manage game supplies within 

the reserve so that they could maintain the hunting 

practices fundamental to their identity. Their 

contacts with indigenous activists at the national 

level, via Cipassé, enabled them to explore ways 

to do this by collaborating with new entities such 

as WWF. 

The wildlife management project had two advantages 

over other collaborations with donors that 

emerged under the auspices of Project Jaburu.


First, the idea resonated powerfully within the 

community and was rooted in community experience 

and expertise. And second, there was no 

rush to implement a plan by importing an elaborate 

theoretical framework or building physical 

infrastructure that no one knew how to operate. 

The project began with a period of joint research 

that over time allowed WWF to better understand 

its partner as well as what had to be done. The 

fruit-processing effort rushed to open a factory 

and never gave funders the opportunity to meet 

the community firsthand. 

Rather than imposing an outside agenda, the 

wildlife project respected and tried to build on 

the foundation of the Xavante’s knowledge of 

natural resource management. In doing so, it 

reinforced the cultural recovery that was under 

way and stirred thinking about what was at stake. 

The danger was not simply that wildlife would 

vanish, but that an important dimension of 

Xavante identity would perish with it. This was 

reflected in elders’ growing fear that youth were 

uninformed and uninterested, and that essential 

knowledge was being lost. Now there are animated 

discussions about the habits of various 

animals and how they are to be hunted. This 

process has also inverted the conventional wisdom 

that hunting cultures are dysfunctional 

under environmental stress. In realizing how 

close they are to the animals they hunt, the 

Xavante have found a powerful cultural reason to 

sustain the resource and the motivation to find 

the means for doing so. 

Thus, Xavante involvement in project data collection 

and decision making has been very productive. 

The Xavante have begun to understand 

how their lifestyle changes have affected the territory 

around them. There is greater recognition 

of the reserve’s unique resources, and protecting 

them has become a priority. 

A number of secondary benefits unrelated to 

wildlife management or natural resource conservation 

also have been achieved. The first sustained 

collaboration between the community and 

an NGO has helped the Xavante gain important 

skills that are essential to their ability to manage 

future dealings with outside entities. These 

skills, which can be thought of as the social 

infrastructure for any kind of project success, 

include such things as how to negotiate with 

NGO representatives, devise project ideas and 

write grant proposals, prepare progress reports, 

keep accounting records, and gain management 

experience. In founding the association and 

learning how to make it work, they have been 

doing nothing less than inventing a new kind of 

social tool for themselves. 

Yet anyone who presumes that there is some 

magic formula for working with indigenous peoples 

only needs to look at the problems that surfaced 

and at times threatened to undermine the 

collaboration. Many of these were unavoidable 

since they were deeply embedded in the culture 

or a result of a long and troubled history with 

outsiders. The point is not that all collaborations 

will face these particular obstacles, but that a 

clear understanding of the cultural matrix in 

each project is vital to its success. A better 

understanding of the factional nature of Xavante 

society and of the complexity of forming transparent 

partnerships might have enabled WWF to 

anticipate and avoid some of the pitfalls that 

nearly swallowed the project. 

Not all problems, however, are what they seem. 

Some not only cannot be avoided, they must be 

welcomed. In this case, factionalism needs to be 

put into perspective. What would often be a sign 

of decay or disorganization in other societies is 

an indicator of cultural intactness among the 

Xavante. Posturing and politicizing are fundamental 

to Xavante social life, and individuals 

enjoy engaging in political disputes and displays. 

While politicization of nearly every imaginable 

aspect of the project may seem paralyzing to outsiders, 

it can also be interpreted as a sign of how 

deeply the Xavante are engaged, a sign that they 

are assuming project ownership on their own 

terms, at their own pace. Comparing the wildlife 

management experience with the failed fruit-processing 

component of Project Jaburu makes this 

more apparent. Fruit processing foundered quietly, 

without public acrimony, because the community 

had been excluded from decision making 

and had decided not to participate. The lack of 

“noise” in that case was a warning sign that 

things were not going well. In contrast, the current 

intercommunity factionalism may be a positive 

sign that the process of taking project 

ownership is extending beyond Etéñiritipa to 

other autonomous communities in the reserve.


Because funders and outside actors did not easily 

grasp the intricacies of Xavante society, they also 

misread the importance of the cultural mediator 

at the heart of a cluster of community projects. 

Too much was invested in a single individual 

who was presumed to speak for the community. 

Although he enjoyed wide acceptance at the 

beginning of the project, this changed over time 

as he began to use access to outside resources to 

leverage internal influence. Funders need to 

understand that their mere presence, and the 

access to resources that they offer, can alter the 

playing field of community dynamics even if 

there is no overt attempt on their part to do so. 

One can also argue that some problems that hindered 

the wildlife management effort might have 

been ameliorated had representatives of other 

factions been more actively involved in the management 

of the Xavante association. (Although 

WWF made several attempts to include other factions 

of the village, including the chief, it was 

never clear to the organization how much they 

should push on this issue.) This is not just a 

question about politics and diplomacy. It also 

involves a question about what kind of information 

is needed to make a project viable. Western 

science can provide tools to help the Xavante 

confirm in detail what they already suspect, that 

game is growing scarce, but the best scientific 

solution will not work if the Xavante do not 

understand it and are unwilling to support it. 

A process of hunting culture recovery was 

already under way, but things might have moved 

more smoothly in the project if ethnographic 

monitoring had occurred in tandem with biological 

data gathering. An anthropologist or outsider 

with in-depth knowledge of the culture working 

in rapport with the technical staff from the outset 

might have realized sooner that the project time 

frame had to be longer. Such a person could 

also have helped build a conceptual framework 

that would minimize disruptions from staff 

turnover that are inevitable in any long-term 

project. More importantly, difficult concepts 

might have been easier to translate into terms 

that the Xavante could understand. And such an 

individual might in turn have facilitated scientists’ 

understanding of Xavante concerns. A 

conscious process might have been engaged that 

would have helped the Xavante to look sooner at 

what aspects of their hunting culture and newly 

sedentary lifestyle were contributing to game 

depletion and what hidden resources were dormant 

within the culture as possible solutions. 

Fortunately the first research biologist understood 

the need to work closely with the Xavante in his 

fieldwork and had the rare interpersonal skills to 

do so. But the informational net might have been 

cast more widely since hunting cannot be separated 

from questions about Xavante lifestyle in 

general. Women, whose role in community 

affairs must not be underestimated, had very little 

understanding of the project. The need for them 

to do so may not have been obvious since men 

are the principal hunters, and the biologists were 

unlikely to think about women’s relationship to 

the project since they relied on the warã as the 

venue for communications. Although the warã is 

the arena for public decision making and discussion, 

in fact most important matters are discussed 

and decided upon in meetings that take place outside 

its sphere (Graham 1993). Had outsiders 

more actively sought to communicate in these 

forums, women might have had a greater chance 

of indirect participation and more opportunities to 

gain understanding and make their voices heard 

(see Graham 1992, 1995). Xavante male leaders 

did not welcome such overtures and actively 

sought to discourage them. However, closer 

ethnographic monitoring from the beginning 

might have helped open doors and provided 

access to new information and a wider perspective 

on project means and goals. It might also 

have helped funders identify the roots of emerging 

problems and begin a dialogue with one 

another and with the Xavante to resolve them. 

Important decisions lie ahead for the Xavante. 

Establishing refuges is provisional, pending the 

results of ongoing monitoring. Since 1991 the 

Xavante have been encouraged to hunt away 

from their home village. With hunters driving to 

distant zones, it is likely that pressure on game 

has actually increased throughout the reserve. 

The system of refuges may suffice for a while, 

although additional species may have to be protected. 

If source areas are encroached upon, 

which may occur as Xavante population 

increases, some species may dwindle dangerously. 

Fortunately, as their history shows, 

Xavante are expert at adapting to new situations.


There are indications that they have shifted their 

hunting preferences from species to species in 

the past, depending on availability. The practice 

of informally hunting in gardens can be more 

systematically exploited in order to reduce pressure 

on larger game populations. 

It is too early to say how the Xavante will fare in 

the future, but they are determined to pursue their 

objectives and are prepared to meet challenges 

head on. They are a fiercely independent people 

who understand that their autonomy depends on 

how well they protect their land. Once, that meant 

guarding against all outsiders. Now it means 

working with those who work with them to protect 

their land, its resources, and their identity. 

Endnotes 

1. The author would like to thank John Butler, 

Nancy Flowers, Ailton Krenak, Frans 

Leeuwenberg, Rosa Lemos, and Kirsten Silvius 

for their thoughtful comments about this case 

study. Thanks also are extended to the Instituto 

Socioambiental for answering questions about 

the legal status of Xavante reserves. 

2. This case study uses the form that literate 

members of the community have adopted in designating 

this community to outsiders, and in distinguishing 

it from others within the Pimentel 

Barbosa Reserve. Variant spellings are recorded 

as Etéñitepa, Etenhiritipá, and Tenipá. 

3. The Kaxinawa of the Rio Jordão in Acre had 

received several grants that focused on issues 

important to WWF. These involved the marketing 

of renewable forest resources, including 

natural fiber handicrafts and improved rubber 

processing. The mayor of Rio Blanco, the state 

capital, donated land and WWF covered building 

costs for a small shop on the main plaza in 

which the Kaxinawa could sell crafts and promote 

their culture. 

4. Allocations ran approximately $25,000 to 

$30,000 per year during phases I and II for 

research and planning. Budgets for implementation 

ran higher. For example, WWF–Brazil 

requested approximately $100,000 for FY 1998 

to cover the cost of scientists’ salaries, two aluminum 

boats, motors, and fuel, and to install 

radio towers so that the reserve’s separate communities 

would be able to communicate. 

Approximately $70,000 was received, primarily 

from WWF–Sweden, to cover all expenses 

except for the radio communication system. 

5. The other major Amazonian language families 

are Arawak, Carib, and Tupi. Other members of 

the Gê language family include the Kayapó, 

Krahó, Suyá and Timbira (Northern Gê) and the 

Kaingang and Xokleng (Southern Gê). Gê languages 

are closely related and their speakers 

share many cultural features. 

6. The background material presented here summarizes 

information from several major works on 

the Xavante. Lopes da Silva (1992) provides an 

excellent historical overview. Other important 

sources are Chaim (1983), Flowers (1983), 

Graham (1995), Maybury-Lewis (1974), and


Ravagnani (1978). Garfield (1996) is important 

for the period 1937–1988. 

7. “Pacification” is the term used by SPI and its 

successor FUNAI to describe government efforts 

to establish peaceful relations with indigenous 

peoples confronted by outside economic and colonial 

expansion. Under the directorship of General 

Rondon, the SPI developed a unique strategy for 

convincing hostile Indians that government agents 

were different than bandeirante slave hunters and 

settlers who were moving into Brazil’s interior. 

The policy called for teams of unarmed SPI agents 

to introduce contact by leaving gifts of beads, 

machetes, mirrors, and clothing in areas frequented 

by members of a targeted group. 

8. Other Xavante groups entered into peaceful 

relations with outsiders during the late 1940s and 

the 1950s. Some groups sought refuge from disease 

and hostilities with Salesian missionaries. 

Their descendants now reside in the São Marcos 

(188,478 ha) and Sangradouro (100,280 ha) 

reserves. Other groups, which had moved much 

further west, were considerably influenced by 

Protestant missionaries from the South American 

Indian Mission and the Summer Institute of 

Linguistics (Wycliff Bible Translators). These 

groups now reside in the Parabubure (224,447 

ha) and Marechal Rondon (98,500 ha) reserves. 

9. The mechanized rice-cultivation project was 

part of the integrated development plan for the 

Xavante Nation, a grand strategy that grafted 

indigenous policy and efforts to improve health 

and education onto the economic development 

ideology of the post-1964 military government 

(Lopes da Silva 1986, 103–105). 

10. For further discussion of the Xavante project 

see Graham (1995, 44–61) and Garfield (1996, 

477–548). 

11. For an excellent discussion of indigenous 

rights and legislation prior to the 1988 

Constitution, see Carneiro da Cunha (1987). 

12. Xavante use the Portuguese term branco, or 

white, to refer to non-Indians. 

13. For more information on this family’s leadership, 

see Maybury-Lewis (1974). 

14. Warodi is the brother of Cipassé’s biological 

father; within the Xavante kinship system he is 

classified as a father to Cipassé. 

15. I attended several of these meetings in 

Goiânia and Pimentel Barbosa. 

16. Scholars have noted similar patterns for 

bicultural mediators elsewhere in native 

Amazonia. See Jackson (1991, 1995), Brown 

(1993), Ramos (1994a, 1994b), and Conklin and 

Graham (1995). 

17. Graham (1995) discusses the tension between 

individual prominence and collective identity. 

18. A new UCG rector would reverse this admissions 

policy after the students were enrolled for 

over a year. 

19. Quickly learning enough Portuguese to follow 

university courses was a severe challenge, 

and adapting to life in Goiânia was hard for 

many students, especially the Yanomami, Surui, 

and Tikuna, whose homelands are very different 

from a cerrado environment. 

20. There is some disagreement about the reasons 

for closing the facility. According to Frans 

Leeuwenberg, who worked as a consultant for 

the CPI, operations shut down because the Ford 

Foundation and the EC withdrew funding. Ailton 

Krenak maintains that funding was not an issue, 

and moving research to local communities was 

the next logical step for the program to take. 

21. Leeuwenberg had been associated with the CPI 

and had already initiated some preliminary studies. 

22. Women also hunt small animals, but never as 

an end in itself. They take opportunities as they 

arise, for instance when a woman en route to her 

garden comes across an armadillo. 

23. Women give a portion of their meat to the 

families of their sons’ brides-to-be who reciprocate 

with garden produce and collected food. 

24. Flowers cautions that individual hunting may 

be underestimated since men take guns with 

them everywhere and serendipitous kills may not 

be reported as hunting. 

25. Flowers cautions that low-prized game not 

shared between households may have been 

underreported. 

26. This meat is then distributed to the entire community 

and everyone but the groom’s family partakes. 

The bride’s family reciprocates with large 

ceremonial corn cakes to the groom’s family. This 

exchange models the contributions to the diet that 

husband and wife will make in their marriage.


27. One such hunt, which bagged a tapir and a 

deer, took place in 1991 for my wedding. 

Tsérére was appropriate because time was short 

(my husband would be in the community for less 

than two weeks) and because he was not accustomed 

to the strenuous conditions of Xavante 

extended-hunting excursions. 

28. The hunting range area increased to 85,000 in 

1992 and 115,000 in 1993, which created a rotation 

total of some 200,000 hectares (Silvius 

1998). These increases coincide with 

Leeuwenberg’s presence, and the wildlife biologist’s 

efforts to explain the effects of overhunting 

in finite areas may have led the Xavante to 

expand their hunting ranges. 

29. I know of only one Xavante who cares for his 

community’s herd, in the Parabubure area. 

30. This section draws extensively on technical 

material in “Development of a Wildlife 

Management Plan for the Rio das Mortes 

Xavante Reserve,” an unpublished 1998 report 

prepared by Kirsten M. Silvius for WWF. 

31. According to Leeuwenberg (personal communication), 

the Xavante, when there is no embryo, 

roast and eat this small organ along with the connective 

tissue at the site of the kill. When there is 

an embryo, the uterus is cut out and discarded. 

Leeuwenberg accompanied some hunts, and none 

of the small number of uteruses he was able to 

observe had placental scars, which indicate the 

number of embryos the female was carrying. 

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CHAPTER 5 

Holding On to the Land: The Long 

Journey of the Sirionó Indians of 

Eastern Lowland Bolivia 

Wendy R. Townsend 1 


Centuries after the Spanish Conquest the Sirionó 

Indians still roamed freely in small nomadic 

bands over a vast area of eastern lowland 

Bolivia. The rubber boom sparked by two world 

wars and then the establishment of large cattle 

ranches in northeastern Bolivia brought that idyll 

to an end and brought the Sirionó to the edge of 

extinction. Many were settled as captive workers 

on large ranches or in government training 

schools that were actually forced labor camps 

(Holmberg 1969). 

One tiny door remained ajar, and even this led to 

a kind of imprisonment. Thomas Anderson, a 

missionary from the Four Square Gospel Church 

in California, was among the first outsiders to put 

down roots in the area. In the early 1930s, he 

had established a mission at a spot chosen by a 

Sirionó group, a place they called Ibiato, or High 

Hill, which lies about 55 kilometers due east of 

Trinidad, the capital of Beni State. Alan 

Holmberg, an anthropologist who described his 

travels with a nomadic band in the 1940s, dismissed 

this missionary effort as marginal, little 

suspecting that within two generations it would 

be the center of what remained of an entire people. 

The missionary’s son, Jack Anderson, 

became fluent in the Sirionó language and began 

to wage campaigns of recruitment. He gathered 

small bands from the forest, brought others from 

forced labor on ranches, and settled them all in 

Ibiato. Following the centuries-old Jesuit system 

of the reducción, or reduction (a South American 

Indian settlement directed by Jesuit missionaries), 

Anderson put the Sirionó to work for the 

mission three days a week (CIDDEBENI 1996). 

For the Sirionó, gaining possession of even this 

small foothold has been precarious. It has been a 

struggle not only to claim the land but to determine 

how it will be used. Thomas Anderson

74 The Sirionó in Bolivia 

seemed to settle the first question by applying 

soon after his arrival for territory from the 

Ministry of Colonization and the Beni State governor’s 

office, or prefectura. In 1933 the 

Bolivian government’s resolución supremo conferred 

“right of possession” to the mission, and 

the claim was measured and titled a year later. 

But the 1953 Agrarian Land Reform Law 

reopened what had seemed settled, requiring all 

landowners to reestablish tenure. Living so far 

from the eye of the state, in an area where few 

outsiders bothered to visit, the mission overlooked 

this “formality” until 1982, when the 

Sirionó pressured Jack Anderson to reregister. 

Even with help from two membership organizations 

working on land rights issues in the state— 

CIDOB (the Confederation of Indigenous Peoples 

of Bolivia) and APCOB (Aid for the Rural 

Peoples of Eastern Bolivia)—the application was 

rejected because of “poor topographic mapping.” 

Meanwhile mission administrators appointed by 

the aging Jack Anderson to act in his stead were 

whittling the territory away through piecemeal 

sales, and the government was issuing duplicate 

titles for other parcels to influential cattle ranchers. 

Land reform was a cruel joke for the surviving 

Sirionó: it created a noose of cattle ranches 

that was steadily being pulled tighter. That pressure 

intensified in 1987 when a new road from 

Trinidad to Santa Cruz, the capital of the neighboring 

state, opened up Sirionó territory to vehicles 

where once only oxcarts could pass. The 

Sirionó seemed in danger of losing everything. 

Fortunately the budding indigenous rights movement 

in the Beni was bringing together many 

groups with similar stories. In 1990, 38 Sirionó 

joined with members of other groups in the area 

for a march to the national capital, La Paz, to 

demand their territory and affirmation of their 

human dignity. The route was backbreaking—a 

trek of over 400 kilometers that wound its way 

up Andean passes more than 4,000 meters higher 

than the spot from which the marchers set out. 

Aided by national and international press coverage 

(including CNN), the march captured the 

popular imagination. By the time the marchers 

reached La Paz, Bolivian President Jaime Paz 

Zamora was ready to sign several executive 

orders designating indigenous territories. With 

the first of these, registered number 22609, the 

government recognized the Sirionó Territory as 

“the area they traditionally occupy … delimited 

by 36 natural landmarks well-known by the people 

of Ibiato.” In 1994 this area was demarcated 

between 64º16" by 64º34" W and 14º40" by 

14º53" S (see map 5.1). Not all the traditional 

landmarks were respected, and claims to some 

30,000 hectares in the neighboring San Pablo 

Forest were left unspecified. 

Besides the problem of what was omitted, the 

Sirionó faced the challenge of taking control of 

what was included. Consolidation of the territory 

proved difficult and is still incomplete. The first 

to cede land was the State University, which had 

title to the central savanna. Not surprisingly, private 

landowners were less willing, and they stalled 

to consolidate paperwork to buttress their own 

claims. Some disputed areas were purchased for 

the Sirionó through the generous donations of 

TUFF (the Swedish Peace and Arbitration 

Society). People who had taken properties along 

the road, however, often refused to cede their 

claims and the land value rose beyond TUFF’s 

means to buy it back. The woodland claims were 

even more tangled. In Bolivia, tenure does not 

guarantee land-use rights. The state retains ownership 

of most natural resources and assigns 

usufruct at its discretion. Most of the San Pablo 

Forest had already been assigned to private concessions, 

although some parcels would eventually 

be returned to state control by concessionaires 

unwilling to pay taxes from a new forestry law 

passed by Paz Zamora’s successor as part of a 

series of sweeping governmental reforms. 

That tide of reform held great hope for Bolivia’s 

indigenous peoples. The new Agrarian Reform 

Law (INRA) allowed groups like the Sirionó to 

hold territory in common in newly established 

indigenous homelands known as Tierras 

Comunitarias de Origen. The new Law of 

Popular Participation promised to strengthen 

local government and allowed the people of 

Ibiato to create a municipal district eligible for 

development, education, and health funding from 

the state. 

However, the ruling party that passed this legislation 

lost power in the 1997 elections before all of 

the administrative procedures for implementing 

the laws could be finalized. Doubts about the 

new government’s intentions to enforce the spirit

The Sirionó in Bolivia 75 

Map 5.1 Borders of the Sirionó Territory of Ibiato According to Decree 22609 

Sirionó Territory of Ibiato 

Savanna Forest 

Borders according to Decree 22609 

Road Casarabe-El Carmen 

Road Trinidad-Santa Cruz 

Cocharca River 

Waterholes (not marked when near road) 

BOLIVIA 

IBIATO 

Trinidad 

La Paz 

Sucre 

Ibiato 

Santa Cruz 

Tarija 

Source: Townsend 1996. Insert map: Cartesia Software. 

of the law quickly surfaced when ambiguities in 

the legislation were interpreted narrowly. Some 

of the rules changed in midstream, imposing burdens 

that low-income communities would have 

difficulty meeting and putting them at a disadvantage 

with large landowners or businesses 

competing for the same resources. 

Even as the Sirionó wrestle with the question of 

usufruct, a new threat of outside colonization is 

looming. The new government is distracted by 

problems with coca growers in the Chapare 

region at the foot of the Andes, and has suggested 

moving some of them to the Beni. Such 

an invasion would chill consolidation of territorial 

demands by all the indigenous peoples of the 

state, but the Sirionó are particularly vulnerable 

because the dirt access road that connects Ibiato 

to the Trinidad–Santa Cruz highway is an arrow 

through the heart of their territory. 

So the victory the Sirionó won with the march 

can still be reversed. The more than 500 Sirionó 

who live on High Hill face a dual challenge as 

they look to the future. First, they must develop 

a resource management plan to consolidate 

tenure and protect their land from outsiders. 

Second, as their population rises and the impact 

of market society intensifies, the Sirionó must 

look inward to organize their own resourcefulness 

if the resource base is to be sustained. 

The external and internal challenges are intertwined 

but have different timelines. A management 

plan is needed quickly, but building social 

institutions to reach consensus and make it stick 

takes much longer. This task is complicated by


more than half a century of dependence on 

“benevolent” outsiders and by the influx of NGOs 

that have descended on High Hill since the presidential 

decree. Many have come with their own 

agendas, offering services that sound good but do 

not necessarily meet the needs of the Sirionó or 

prepare them to run their own projects once the 

short-term funding runs out. This case study 

looks at a long-term effort that is under way to 

help the Sirionó develop an integrated forest management 

plan to hold on to their land and use its 

resources wisely. This effort is still in its early 

phases, and some of its components, including 

wildlife management, are focused on research to 

help the community recover its knowledge of the 

environment and adapt scientific concepts, when 

appropriate, to meet local needs. 

The story of this effort to put the Sirionó in 

charge of their own destiny is broken into three 

parts. The first gives a brief overview of local 

ecosystems, social organization, and resource-use 

patterns, and the implications of new tenure and 

usufruct legislation. The second looks more 

closely at the forest management initiative and its 

wildlife component. Finally, lessons are offered 

that may be of use to others. The Sirionó are a 

small group, their territory is modest, and it sits 

on the far fringes of the more biodiverse parts of 

Bolivia’s Amazon Basin. But the Sirionó are fortunate 

to have what so many other groups in 

those areas lack—a presidential decree that 

allows them to begin turning the dream of a 

homeland into a lasting reality. They are part of 

a much larger indigenous movement, and what is 

learned in Ibiato can be applied elsewhere and 

become a precedent for persuading a reluctant 

government to give others the same opportunity. 

Lessons are also being learned about how conservation 

NGOs can build a sustained dialogue with 

indigenous peoples to build partnerships in which 

economic viability and environmental stewardship 

go hand in hand. 

II. An Overview 

2.1 Ecosystems of the Sirionó Territory 

Sirionó ancestors chose their foraging grounds 

wisely. As nomads who roamed a wide belt east 

of the Andes, they knew that the transition zone 

between the forested Chiquitano highlands and 

the savannas of the Beni Basin was rich in the 

motacú palm (Attalea phalerata), which was 

their principal carbohydrate source (Holmberg 

1969). The area is abundant with game, as 

wildlife also feed on the palm, which produces 

fruit year-round. The density of these palms is 

not accidental, but is a sign of intensive pre- 

Columbian activity by indigenous peoples 

(Balée 1987, 1988, 1989), who nurtured the 

plant as a wild crop. Confirmation of that presence 

can be seen in the many human-made hills 

and canals carved across the region (Denevan 

1966; Townsend 1995, 1996). The village of 

Ibiato is built on one of these hills, rising about 

80 meters above the surrounding floodplain. 

Visible reminders of past human habitation are 

evident in the pottery shards littering more than 

20 other hills elsewhere in the territory. The 

Sirionó do not remember the people who once 

inhabited this zone and are probably not 

descended from them, since the Sirionó language 

is linked to those of the great 

Tupi–Guarani migrations entering the area prior 

to the arrival of the Spaniards (Holmberg 1969). 

Although they have roamed the zone for much 

longer, the Sirionó have been rooted to the patch 

around Ibiato for little more than half a century, 

some three generations. Nonetheless they know it 

intimately, as their names for the mission’s 36 

landmarks indicate. Some of the names refer to 

relatively recent events: Ama Nguichia is where 

“the woman was struck by lightning.” Other 

names come from the particular resource endemic 

to the spot: Tambatá savanna bears the moniker of 

the walking catfish (Hoplosternum thoracatum) 

that is common there. The accumulated knowledge 

crystallized in the language includes an ability 

to describe the great diversity of habitats 

found in this region. The area of the San Pablo 

Forest that has yet to be demarcated is less well 

known by living Sirionó. 

The landscape delineated by the presidential 

decree is primarily of two types. Some 46 percent 

is flooding forest, and 48 percent is flooding 

grassland or swamp. The remaining patches consist 

of artificial hills, gallery forests, and related 

agricultural land. Even though soils may be variable, 

over 70 percent of the territory floods for 

two to six months a year. Some forested areas 

only flood in peak rainfall years, and the water 

may drain in only days or weeks, making agriculture 

possible most of the time.


But a satellite photograph that divides the landscape 

into savanna and forest does not begin to 

capture the diversity seen on ground level by an 

experienced eye. The Sirionó recognize many 

forest types by their soils and the presence of 

indicator species (CIDDEBENI 1996). The three 

most extensive forest categories recognized by 

the Sirionó are tagged by prominent species in 

their undergrowths. The first, Ibera, refers to a 

high density of lianas. The second, Quiarochu, is 

named after a prolific Heliconia. Finally, Ibiete 

is abundant with a rapidly growing ginger plant. 

Palms, such as the motacú and the chonta 

(Astrocaryum chonta), are abundant and often 

make up more than half the trees in all three forest 

types (Townsend 1996). 

Although the land is flooded part of the year, cold 

southerly winds during the dry season leave 

behind only water holes, which become a crucial 

limiting factor for game populations. The swamps 

of the deepest savanna, locally called yomomos, 

contain considerable water even in dry years 

because each is capped by a floating peat mass 

capable of supporting Tajibo trees (Tabebuia) five 

meters tall. Yomomos provide refuge for many 

aquatic animals, including two species of caiman 

(Caiman yacare, C. nigricollis), three kinds of 

stork (Jabiru mycteria, Ciconia manguari, 

Mycteria americana), capybara (Hydrochaeris 

hydrochaeris), and marsh deer (Blastocerus 

dichotomus). Other important water holes lie 

beside many of the pre-Columbian mounds. 

Before wells were dug in Ibiato, the Sirionó 

often had to walk a kilometer or more to dig for 

water in the savanna. Many people still do so 

during the dry season because they find well 

water too “salty.” A recent development project 

in Ibiato has perforated a new well and built a 

water tank, and though the water’s taste has not 

improved, it is available on most days at various 

spigots near the houses. The children who were 

the principal water carriers from the savanna now 

have more free time. This benefit is offset by 

other costs: it takes fuel to keep the tank pumped 

full and, more ominously, runoff from the new 

water system threatens to erode the Ibiato hillside, 

which was constructed by generations of 

pre-Columbian labor. 

When the rains return sometime between October 

and December, the creeks overflow. Millions of 

walking catfish emerge from aestivation and 

swarm onto the flooding savanna. Overnight 

what was parched landscape becomes a superrich 

breeding ground for fish, reptiles, amphibians, 

and insects, drawing a multitude of 

migratory birds and mammals to feast on the 

abundance. The savannas submerge as the rainy 

season progresses, significantly hampering transportation. 

It requires a strong ox to cross from 

Ibiato to the forest, and most people must walk 

circuitously around the swamp to reach their garden 

plots. During this period Ibiato turns from a 

village on a hill into an island. 

The floodwaters drain northeast into the Cocharca 

River and from there into the Itenez and Madeira 

rivers of the Amazon Basin. The northeasterly 

drainage is aided by dry southerly winds that follow 

the winter cold fronts from June to August. 

These fronts, locally known as surazos, can drop 

temperatures from 36º C to 7º C in a few hours. 

After a few days these winds usually shift, and 

temperatures return to average, about 25º C. 

2.2 Sirionó Social Organization 

According to Holmberg (1969), the fundamental 

social and economic unit of the nomadic Sirionó 

was the matrilineal nuclear family (married man, 

spouse or spouses, and their children). The 

Sirionó wandered in bands, usually consisting of 

several matrilineal extended families (with 

matrilocal residency), which were loosely associated 

around strong leaders. The chieftain (a patrilineal 

position) knew where the game and other 

food resources could be found, but his band had 

no prescribed territory. Resources were held in 

common but belonged to whoever used them. 

When one band came across another, the meetings 

were peaceful and without prescribed ceremonies. 

The Four Square Gospel Mission joined various 

bands together at Ibiato, each with its own leader 

or cacique, some of whom had considerable fame 

in the Sirionó world. Several caciques were 

given equal roles to play in managing the community, 

and in this way a council was created. 

For decades these leaders solved internal problems 

and represented the Sirionó with the mission 

while the Andersons managed the 

community’s relations with the outside world. 

During the 1970s, direct management of the mission 

and its cattle herd was delegated to a series 

of hired outside administrators.


With the improvement of the road from Trinidad to 

Santa Cruz in 1987, Ibiato became more accessible 

and, despite Jack Anderson’s efforts, direct contact 

with the outside world became inevitable. Leadership 

in the community began to change as outside 

contact increased and literacy became more important. 

The average age of leaders dropped by 10 

years. This new group of cultural brokers was 

more worldly-wise but less knowledgeable about 

traditions and the local environment. The older 

chieftains were relegated to an advisory Council of 

Elders, while the younger generation took over the 

Sirionó Council and revamped it with a more formalized, 

functional structure. 

Today the community is governed by this council, 

which consists of a president, vice president, 

secretary of minutes, secretary of communication, 

secretary of land affairs, secretary of organization, 

corregidor, sub-alcalde (vice mayor), and 

the Council of Elders. Only the president and 

the secretary of land affairs are empowered to 

speak formally for the Sirionó. But the corregidor 

and the vice mayor have roles to play as representatives 

who report to the federal and state 

governments, and the municipal government, 

respectively. Now that the Sirionó territory is its 

own municipal district (#12) eligible for funding 

under the new Law of Popular Participation, the 

Sirionó have created an independent watchdog 

committee to monitor proper use of the funds. 

The Sirionó are also represented in the network of 

Bolivian indigenous organizations, starting with 

the statewide CPIB (Center for Indigenous People 

of the Beni) and CMIB (Center for Indigenous 

Women of the Beni). These in turn are affiliated 

with the national umbrella organization CIDOB 

(Confederation of Indigenous Peoples of Bolivia), 

which in turn is represented in the multinational 

COICA (Confederation of Indigenous Organizations 

of the Amazon Basin). Through these 

organizations (or directly if needed), the Sirionó 

can receive counsel from lawyers hired by CEJIS 

(the Research Center for Social Justice). As a 

result of these contacts, the Sirionó have learned 

to make their collective voice heard, especially 

when political action is required. For example, 

when the government seemed to drag its feet on 

including indigenous territories in the new agrarian 

reforms of INRA in 1996, the Sirionó participated 

in a CIDOB-organized protest march from 

Santa Cruz to La Paz. 

Bolivia’s indigenous people have begun to assert 

themselves in the electoral arena also. During 

the last elections indigenous candidates won 

local offices and even Senate seats in La Paz 

under various party banners. At the national 

executive level, however, the results were discouraging 

for the indigenous rights movement. 

The prominent leader Marcial Fabricano, a 

Mojeño from Trinidad, ran for vice president on 

the ticket of MBL, the country’s fifth-largest 

political party. Unfortunately the slate lost quite 

badly, even in Ibiato, which did not turn out to 

support an indigenous leader. The roots of political 

patronage run deep, and the Sirionó traditionally 

have had closer ties through one of Jack 

Anderson’s sons to another party, the MNR, 

which had won the previous election. 

A key player in helping negotiate terms with the 

outside world has been the mission school, which 

has played a dual role in Sirionó life. On one 

hand it has probably helped erode the accumulated 

knowledge of the traditional culture. On 

the other it has conferred the powerful tool of 

basic literacy. Fortunately this missionary enterprise 

was bilingual and avoided the pitfalls of 

replacing a native oral tongue with the Spanish of 

mainstream society. In the 1960s, missionaries 

Perry and Anne Priest of the Summer Institute of 

Linguistics (SIL) began giving Sirionó a written 

form by translating the Bible. They educated a 

few youths at the SIL compound in Tumichuqua 

before moving their translation work to Ibiato, 

living in the village for months at a time. The 

Priests supported education in both Spanish and 

Sirionó, and paid teachers’ salaries. Later they 

arranged for the teachers to be given government 

positions. Today the school has five grades. 

Like Bolivian rural education in general, the 

quality is not high but nearly 95 percent of 

Ibiato’s children attend school. 2 The young people 

that these missionaries trained are today’s 

Sirionó leaders and educators. Without these 

missionaries’ early efforts to educate the Sirionó 

in the national language while preserving the 

Sirionó language, the community would not be 

learning to handle its own affairs today. 

The missionaries also brought Western medical 

care and a dependence on commercial pharmaceuticals. 

Anne Priest ran a daily clinic to treat 

the Sirionó, who faced serious epidemics of 

measles, mumps, and assorted influenzas.


Lung problems are still very common. Young 

children not given antibiotics still die of pneumonia, 

and tuberculosis is endemic. More recently, 

nurses from Caritas have supplied prenatal health 

care along with pediatric care and nutrition programs. 

There is also a state-paid community 

health worker who has been trained to treat the 

most common illnesses such as diarrhea, bacterial 

infections, and colds. Major problems are 

referred to a hospital in Trinidad. Recent paving 

of the road to within 14 kilometers of Ibiato 

makes that easier, and the community radio can 

be used to summon an emergency vehicle even in 

the rainy season when the dirt road turns to mud. 

Child mortality has dropped dramatically. 

Women now in their 60s lost most or all of their 

children to various epidemics that once swept 

like a scythe through the population; now there 

are younger mothers who have 10 to 13 living 

children. The 1993 estimated population growth 

rate predicted a doubling time of 11.1 years, 

which means that there will be over 1,000 

Sirionó in the Tierras Comunitarias de Origen 

(TCOs) by 2004 if recent trends continue. 

Nearness to the state capital has affected community 

life in another way. Bolivia has seen an 

explosion of NGOs in recent years. As a remnant 

indigenous group within a taxi drive of the 

regional airport, the Sirionó have become “poster 

children” for service NGOs staffed by urban professionals 

who seldom stray far from a paved 

road and have little interest in long-term community 

development. The Sirionó are anxiously 

looking for solutions to their everyday living 

requirements, and for anything that promises to 

help them consolidate their territory. Many NGO 

project ideas sound enticing because they promise 

to be “cost free.” Yet too often they pull the 

Sirionó in different directions, since NGOs 

increasingly offer specialized services keyed to 

their own internal agendas rather than to an overall 

assessment of the needs and aspirations of the 

community. Because many of these proposals are 

conceived as short-term transferable packages of 

infrastructure or technology, the need for involving 

local people in planning, design, implementation, 

and evaluation is ignored. The end result is 

predictable. Either the technology does not work 

as advertised or it has unintended consequences. 

Several projects, for instance, have focused on 

cattle production. The Sirionó are attracted 

because it seems like an uncomplicated way to 

reinforce their claim to the land by showing it is 

being used, and perhaps because some of them 

have worked on ranches elsewhere in the state. 

Yet similar projects throughout the Amazon 

region have usually had unhappy results. If the 

cattle are held privately, incomes can become 

skewed and community polarization increases, 

particularly if the grazing areas are communally 

held and not everyone shares in the benefits. 

Perhaps more importantly in the case of the 

Sirionó is the question of what environmental 

impact more intensive cattle herding would have 

on native plants and animals that people are 

already concerned may be diminishing. 

2.3 A Subsistence Economy in Transition 

Holmberg (1969) described the Sirionó as being 

first and foremost hunters, with little or no horticulture. 

Their agriculture in the 1940s was little 

more than planting maize in natural tree-falls. 

Even in the farming colony that Holmberg helped 

found, Tibaera, the quest for meat kept people 

moving, often to the detriment of their crops. At 

Tibaera, Holmberg recorded a daily per-person 

meat consumption during August, September, 

and October 1941 of 238, 225, and 153 grams, 

respectively. While trekking, he reported daily 

intakes of up to 1 kilogram of meat per person. 

Fishing by bow and arrow occurred but was considered 

unimportant. 

The primary supplement to hunting was the gathering 

of forest foods, particularly palm hearts and 

various fruits. The entire family took part, with 

children learning what plants were edible by 

helping to collect them. The quest for wild 

honey was constant, and the Sirionó were adept 

at spotting the small holes native bees bored in 

dead trees for hives. 

Today the Sirionó lifestyle has been reversed. 

They live mostly from the bounty of their gardens, 

with primary crops of upland rice, maize, 

sweet manioc, bananas, yams, sugar cane, avocados, 

citrus, pineapple, and mangos. Excess produce 

is fed to pigs, chickens, and a few ducks 

that roam freely throughout the village. 

Supplementary staples such as sugar, cooking oil 

or lard, and wheat flour can be purchased from 

household shops that stock items when they can. 

Traveling salesmen who once came intermittently 

on horseback now arrive regularly by vehicle,


bartering goods for chickens or for honey when it 

is available. Domesticated animals are rarely 

eaten but are held in reserve as a source of emergency 

cash. Some community members own a 

horse or two and a few cattle, or keep saddle 

oxen to get around during the rainy season. 

Finding outside work to earn cash is not difficult. 

Most surrounding ranches hire Sirionó 

men as cowhands or as day labor for building 

fences or clearing land. A cowhand takes his 

family to the ranch that employs him, leaving 

behind children still in grade school to board 

with other families. About one-third of outside 

work is on cattle ranches, while agriculture and 

construction split another third (CIDDEBENI 

1996). The remaining third comes from work in 

sawmills, palm heart factories, and assorted 

other activities. There is also the beginning of 

an internal labor market from the influx of NGO 

projects and the creation of a municipal district. 

At times the heavy demand for certain skilled 

people requires the Sirionó to hire others to help 

tend their garden plots. 

Yet despite these activities the Sirionó still consider 

themselves to be hunters, and leadership is 

still linked to hunting prowess. The hunting has 

changed considerably, however. No longer do 

the Sirionó employ the world’s longest bows and 

arrows as described by Holmberg. Now more 

than half the game is killed by firearms, and 

three-quarters is taken using weapons unavailable 

before Columbus. Although fishing is still 

secondary, it is a regular source of protein for 

some families. Boys spend afternoons using 

hook and line to bring in 5 to 10 kilograms of as 

many as 50 small fish. This may soon be a 

memory, however, because the road dike constructed 

across the nearby lake blocked flows 

and is building up sediment. What was once 

open water is becoming a peat bog. 

During 1991–1992, hunting supplied over twothirds 

of the animal protein in the Sirionó diet 

(Townsend 1995, 1996). Wildlife comes from 

both savanna and forest. If one considers all the 

fish as savanna products, approximately 100 kilograms 

per square kilometer per year are extracted 

from this habitat. In addition to fish, the considerable 

harvest of savanna biomass includes marsh 

deer, nine-banded armadillo (Dasypus novemcinctus), 

gray brocket deer (Mazama gouazoubira), 

and various marsh birds. In a year, the 

Sirionó extract 134 kilograms per square kilometer 

of game from the forest, including tapir, two 

species of peccary, red and gray brocket deer, 

coatimundi, and two large rodents, the paca and 

the agouti. Hunting is practiced year-round and 

harvest composition varies seasonally. Over 90 

percent of game biomass taken in 1991–1992 

was mammalian, and 75 percent of that came 

from ungulates. If the extracted biomass is averaged 

across the population of Ibiato, it averages 

about 55 grams of protein per capita daily. This 

corresponds to the average daily intake of wild 

animal protein by other Latin American indigenous 

groups, which has been estimated at 59 

grams per capita (Townsend 1995, 1996). It is 

also nearly three times the recommended adult 

minimum daily allowance of 20 grams of protein 

(FAO/WHO 1973). 

Game harvests have fallen in recent years, perhaps 

because the number of domesticated animals, 

overseas food-aid efforts, and jobs from the 

influx of NGO projects have risen. But it is the 

decline in game supply reported by Sirionó 

hunters that has sparked interest in producing a 

wildlife management plan. That interest dovetails 

with the desire to earn income, since the 

Sirionó also sell skins and hides when there is a 

buyer. One game hunt has been monitored 

(Stearman and Redford 1992), and the harvest 

was judged to be sustainable. 

The Sirionó also harvest various wild honeys produced 

by the native meliponid bees. They have 

an elaborate identification system for 15 different 

bee types based on the taste of their honeys 

(Montaño 1996). Although most are too acidic 

for sweetening, each honey has a medicinal use. 

The Sirionó barter the honey in Ibiato but prefer 

to sell it in Trinidad, where the women offer it 

door to door for higher prices. The revenues are 

used to buy household utensils, school supplies, 

oil, sugar, flour, and other necessities. 

There is also some interest in marketing crafts. 

Some of the women fashion simple necklaces of 

seeds, feathers, and porcupine quills to sell in 

Trinidad and also to the numerous visitors to 

Ibiato. Traditionally women have made string 

hammocks from Cecropia fibers, but the 

women’s club has learned how to weave hammocks 

and some members are now producing 

them. Sirionó baskets—usually rudimentary and 

unfinished—are not an inspiring tourist item.


The clay tobacco pipes made by the older folk 

crack easily because of their poor firing and are 

equally hard to sell. A recent project has set up 

an artisan center where men and women can 

learn woodcarving, ceramics, basketry, and 

weaving, but the teacher was hired for only a 

short period. The sponsoring NGO overlooked 

local master artisans for the position, and presumed 

they should offer their skills for free. The 

outsider who was hired offers only outside techniques, 

and there is no effort to recover or refine 

designs based on local tradition. 

2.4 Tenure and Resource Rights 

The Sirionó are interested in using their 

resources to raise income and to ward off outside 

claims by showing that the land is already being 

used. The recently enacted agrarian reform law 

setting up legally established indigenous homelands, 

or TCOs, would help consolidate what was 

granted through the presidential decree. 

Legislators who drafted the law, however, may 

have underestimated the difficulty in equitably 

administering it. A community must show that it 

is culturally intact and has the ability and intent 

to manage the ecology of the land in its possession. 

In practice, this means showing proof of 

ownership and obtaining registered land-use concessions 

from the agencies in charge. Even when 

a community has title, it is often described in 

terms of metes and bounds without meaningful 

reference points. 

The Sirionó thought they had resolved all doubts 

by surveying their land with navigation-quality 

global positioning instruments (GPS), which met 

the government standards in place at the time. 

The Agrarian Reform Institute set up to implement 

the law, however, now says it requires the 

extraordinarily expensive geodesic GPS survey, 

whose accuracy far supercedes that of most titles 

already on file. The midstream switch in requirements 

has raised concerns among the Sirionó that 

the government does not want to issue final 

deeds and is stalling until large landowners can 

consolidate rival claims. Even if that suspicion 

proves unfounded, to comply with the requirements 

for a definitive study of even one territory 

is daunting, and the flood of applicants for 

TCOs, many of which have more tangled claims 

than the Sirionó, ensures long processing delays. 

Another problem concerns registration of 

usufruct with the appropriate government agency. 

The presidential territorial decree exempts the 

Sirionó from justifying why they need as much 

land as they have asked for, but the new forestry 

law applies in full force to preexisting as well as 

new activities on their territory. It says that 

before they can commercially harvest their forest 

products—including wood, honey, game, or wild 

fruits—the Sirionó must have a written management 

plan, produced by a professional forester. 

Other strictures apply as well. As the next section 

will explore more fully, this creates a sense 

of urgency not only because it affects long-standing 

sources of income but because forest 

resources have value to other interests in the area 

who may be able to prepare their own management 

proposals more quickly. 

Fortunately for the Sirionó, there has been no 

discovery of mineral resources in their territory: 

Bolivia’s mining law supercedes all other law 

and allows those obtaining concessions considerable 

leeway in terms of environmental damage. 

Other laws presently under review govern water, 

hydrocarbon extractions, and biodiversity and 

genetic resources. The draft biodiversity law 

would give the federal government complete 

responsibility for managing the natural flora and 

fauna of the entire nation plus all rights to commercial 

benefits from the genetic material. 

III. Community-Based Resource 

Management 

The Sirionó are caught in a bind. They have 

established legal claim to much of their territory, 

but do not control its resources. To secure title to 

their land, ward off outside threats, and earn cash 

needed to supplement their subsistence economy, 

they may feel compelled to choose a course that 

will destroy their resource base. Most NGOs 

have focused on income generation rather than 

sustainable development. Perhaps that is because 

community-based natural resource management 

that includes the promotion of sound economic 

opportunities would require a long-term commitment 

of resources to local capacity building. 

NGOs with short-term outlooks are often reluctant 

to invest in results that are likely to materialize 

only down the road on someone else’s books. 

This section will look at precursors in wildlife


research that helped spark local interest in sustainable 

management, and then examine efforts 

by an exceptional local NGO, CIDDEBENI, to 

help the community develop an integrated 

resource management plan. 

3.1 Game Counts and the Seeds of 

Resource Management 

Some of the first seeds for sustainable management 

were sown in 1987, with field research 

undertaken by anthropologist Allyn M. Stearman 

from the University of Central Florida. Stearman 

studied Sirionó natural resource use and recorded 

a 90-day measurement of game and fish extraction. 

The Sirionó found the process and their 

visitor interesting, and this paved the way for a 

two-year study by one of Stearman’s dissertation 

students. Despite pressure from the missionaries, 

who saw their grip being loosened, the community 

decided to participate in the study because 

they saw how the research could prove to outsiders 

that the Sirionó were using a much larger 

territory than the village of Ibiato. 

The follow-up study began in 1991, and was targeted 

at measuring the game, fish, and honey 

used by the Sirionó over a long enough period to 

enable an estimate of the territory required for 

sustainable harvests. 3 Community involvement 

was tremendous because people saw how this 

information would buttress their claim to the 

land. Foreign scientists and Bolivian university 

students were welcomed into the community and 

given open access to what was hunted and caught 

and gathered. Many friendships formed as biology 

students worked hand in hand with Sirionó 

assistants in measuring the game, fish, and honey 

harvests, and the close collaboration insured that 

the skill for measuring future harvests was transferred 

to members of the community. Six 

Sirionó were trained in detailed data collection, 

while various hunters helped weigh game and 

took detailed field notes about their kills. 

Measurements were made by observation during 

the 1991 harvests and by self-monitoring the next 

year. During 1992, 19 of the approximately 46 

hunters monitored their own game harvests, 

faithfully registering their game in booklets supplied 

through grants from the Biodiversity 

Support Program (BSP)/WWF, and the Wildlife 

Conservation Society (WCS). Results showed 

wide variation between the 1991 and 1992 harvests 

taken in by most of the 19 hunters’ 11 

households, but average daily biomass harvested 

per person (0.34 kg) did not differ significantly 

(Townsend 1997). The monitoring would not 

have worked so smoothly without the widespread 

literacy instilled by the mission school, but the 

hunters’ thoroughness and persistence probably 

stemmed from their excitement in finally finding 

a practical way to apply little-used writing skills 

to benefit their community. Perhaps personal 

pride in hunting prowess also played a part, but 

the rationale for boasting was minimized since 

the research focused on numbers rather than 

exact details of hunts. Since game is seldom 

secretly brought to Ibiato anyway, what was new 

was not knowledge about a specific hunter’s 

ability but a growing awareness about the total 

collective harvest. This experience in self-monitoring 

created baseline data to show hunters 

changes in the abundance or scarcity of game, 

and woke community interest in resource management. 

Some of the hunters continued to fill in 

their data booklets years after the study ended, 

and what they found fueled suspicion that game 

was not as plentiful as before. Eventually this 

would lead them to request that a way be found 

to renew the monitoring on a formal basis. 

3.2 An Integrated Community Forest 

Management Plan 

A major step forward took place in 1996, when 

CIDDEBENI, a local NGO that had assisted the 

Sirionó since the early days of the indigenous 

rights movement, intensified its involvement. 

The NGO had focused its attention on securing a 

territory, supporting the Sirionó during the 

protest marches, and providing counsel during 

the negotiations that followed. It advised the 

community about the legal hurdles that had to be 

surmounted and provided technical assistance for 

land demarcation. With CIDDEBENI’s help, the 

Sirionó reconnoitered where their ancestors once 

roamed freely and used Landsat imaging and 

GPS technology to delineate the 30,000 hectares 

in the San Pablo Forest that was given to them by 

Presidential Decree 22609. They focused on 

high ground that was at least 5 to 10 kilometers 

from the road, did not overlap with cattle ranches 

on savanna lands or timber concessions in the 

forest, and was contiguous with the area speci-


fied by the 36 traditional landmarks cited in the 

executive order. 

When the new legislation began its passage 

through the legislature, CIDDEBENI realized the 

opportunity and danger it posed. If the community 

could develop a plan to manage its forest 

resources, it would have the leverage to push forward 

and consolidate what the presidential decree 

had promised. If the community did not act, the 

new laws could be turned against the community 

and all that had been gained might be lost. 

To its credit, CIDDEBENI realized that for any 

victory to be lasting, the community would have 

to take charge. But it also knew that the community 

did not have the skills or the awareness yet 

to meet the challenge it faced. With preliminary 

financing from the International Work Group for 

Indigenous Affairs (IWGIA), a donor based in 

Denmark that supports training in self-governance, 

CIDDEBENI helped the community survey 

its needs, set priorities, and identify what had 

to be done to meet them. The Sirionó identified 

several areas for attention (CIDDEBENI 1996). 

The two at the top of the list—territory and 

health—were to be expected, given the history of 

the past half-century. In descending order the 

remaining priorities were education, organization, 

cattle husbandry, overuse of plants, lack of 

arable land, overexploitation of wildlife, facilitation 

of honey production, commercialization of 

local products, and the need for outside work. 

Participants concerned with each priority were 

then asked to analyze its problems in detail. 

Those concerned with wildlife, for instance, 

reported that game was growing scarce in the 

traditional hunting grounds and hunters must 

travel farther from the community to find it. 

Possible reasons for this were outside poaching 

because the territorial guards were ineffective, 

and the absence of internal controls over the harvest. 

Analysis of plant overexploitation led to 

similar findings, and a list of threatened wood 

plants was drawn up. Participants noted that 

medicinal plants were also being lost, along with 

the knowledge of how to use them. Gradually 

the dialogues in these small focus groups moved 

to communitywide planning sessions at which 

conflicts and connections that were hidden 

became apparent. Thus awareness grew that 

people cutting dead trees for firewood were 

competing for a common resource with those 

hunting honey, since some native bees require 

hollow logs for their hives. This led people to 

think about the lack of forest resource management 

and administration not only for fallen but 

for standing trees. 

When the diagnostic survey was complete, 

IWGIA funded community development of a 

resource management plan and its partial implementation. 

Technical assistance to help the 

Sirionó handle their 200 cattle is being funded by 

the Japanese donor JBN. But the core of the 

community effort is an integrated forest management 

plan with two primary components—for 

firewood cutting and honey production—and 

research to add a third component for wildlife. 

CIDDEBENI, with IWGIA support, is teaching 

the Sirionó how to inventory their woodlands and 

develop rational schemes for firewood and honey 

production that can be presented to the Bolivian 

Superintendent of Forests as required by law. 

The driving force behind the forestry management 

plan has been the exploding firewood market. 

Outsiders constantly pressure the Sirionó to 

sell timber, especially what remains of the hardwoods, 

but many other trees are useful as fuel. 

Fortunately, since 1991 the community organization 

has been strong enough to legally repossess 

wood taken by pirate loggers. But the situation 

is complicated by the fact that individual Sirionó 

and the community organization have been making 

agreements with outsiders for selective tree 

cutting. Since 1992 the extraction of firewood 

from the territory has skyrocketed, with thousands 

of cubic meters from agricultural clearing 

being sold to the ceramics industry in Trinidad 

alone. The integrated planning process is an 

attempt to bring order to a process that has been 

out of control. 

Following is an example of how seriously the 

Sirionó are taking this opportunity. In January 

1998, prior to approval of the management project, 

the Sirionó Council signed a contract with an outsider 

to cut wood to repay old community debts. 

The contractor agreed to pay Sirionó men to cut 

the wood with the community chainsaws, but only 

if the timber was priced cheaply. The contractor 

waited five months to call in his claim only to be 

greeted by an unwelcome surprise. Financing for 

the management project had finally been approved


by IWGIA, and the community was canceling the 

firewood contract. It chose to stick with its management 

plan and abide by forestry law. The contractor 

was accustomed to getting his way with 

indigenous people, and threatened to confiscate the 

community chainsaws he had taken for repair in 

January. Despite the fact that he might just get 

away with it, the entire community decided to stay 

the course. They would complete their management 

plan and master the new skills that required 

before selling any more wood. 

The community is conducting inventories to estimate 

the rotation cycle of firewood trees, concentrating 

on fast-growing species. The community 

will also begin seeding forests with hive boxes, 

providing ample space for native bees to multiply. 

Since meliponid bee honey is a rarity on the 

world market, the Sirionó and their advisors hope 

to develop an exclusive market niche for at least 

some of the varieties. 

At first, it seemed there would be no wildlife 

component. It was down the list in the diagnostic 

survey and no funder stepped forward eagerly 

to embrace it, perhaps because market applications 

seemed vague. Interest among hunters was 

high, however, especially among those who had 

participated in previous research studies and 

were eager to explore the possibilities. And there 

was an indirect indication that communitywide 

interest was deeper than it first appeared. An 

earlier reforestation project funded by TUFF 

went awry when the local NGO providing technical 

assistance insisted on growing hardwood 

saplings in the tree nursery because they had the 

highest cash value. It was only when a new 

NGO took over and let Sirionó choose their own 

trees that the project went forward. The Sirionó 

chose fruit trees they knew would be a food 

source for game. 

Finally, a $2,000 grant from the Wildlife 

Conservation Society stimulated further financing 

from a CIDOB research project, funded by the 

British government’s Department for International 

Development (DFID). This allowed the Sirionó 

to begin wildlife inventories as part of the overall 

forest management plan. The CIDOB project is 

designed to transfer research and analytic skills to 

communities by letting them play an active role in 

designing and implementing their own field studies 

in partnership with an outside technician. To 

help integrate results with the overall plan, John 

Kudrenecky, the Canadian forester already guiding 

the forest inventory, agreed to help guide 

fieldwork in the new study as well. With his help, 

and advice from CIDOB’s research coordinator, 

the community designed its own data collection 

formats to census wildlife and monitor hunting. 

The intent is to assess the sustainability of peccary 

populations and set the stage for marketing 

the hides from a species that is a prime source of 

protein in the local diet. 

The skills being learned are not simply technical; 

they involve making explicit what was often 

implicit in cultural practice and traditions. In the 

past, resource conservation was a byproduct of a 

nomadic lifestyle. Because the Sirionó moved on 

when resources became scarce, hunting ranges 

were allowed to regenerate naturally. Since the 

Sirionó have settled in Ibiato, their zone of influence 

has shrunk drastically. For decades game 

populations remained sustainable because of the 

source–sink phenomenon, in which the surrounding 

area produced enough wildlife to resupply the 

capture basin of the Sirionó. Large ranches in the 

area left the landscape relatively unchanged and 

fed their workers with slaughtered cattle. Now, 

with the along-the-road settlement of colonists 

who practice slash-and-burn agriculture and also 

hunt for subsistence, the regeneration time for 

game in the surrounding area has nearly vanished. 

Unfortunately the Sirionó did not understand this 

phenomenon when they requested their territory, 

but it is unclear what difference this would have 

made, given the difficulty in establishing control 

over what was claimed. 

The new Bolivian laws requiring a management 

plan for commercializing any wildlife resource 

are forcing the Sirionó to consider matters that 

would soon have to be confronted anyway. And 

early indications suggest they are up to the challenge. 

As previous work with wildlife studies in 

the early 1990s showed, the Sirionó have the literacy, 

numeric skills, and motivation to prepare 

management plans for sustainable harvests. 

What was needed was the opportunity and time 

for training in transect censuses and other related 

analytic skills. The research grant from DFID is 

making that possible, and what is being learned 

in counting peccaries can be applied to other animals 

as well. A number of Sirionó hunters are


engaged now in producing some of the first density 

estimates for various species ever completed 

in Bolivia. Typical data will cover over 350 kilometers 

of transects walked. 

Discussions about wildlife management are also 

raising awareness of the double-edged dangers the 

community faces. As the Sirionó realize they 

have no control over land-use changes occurring 

around them, concern rises about the need to be 

extra vigilant over resources they do control. 

There is a voluntary territorial guard to ward off 

poaching, but as the survey showed it has had 

mixed success. Warding off neighboring 

colonists who hunt along the road and trails and 

at the water holes is one thing; sport hunters are 

quite another. They sometimes kill numerous 

animals in a night, often indiscriminately, leaving 

the less-desirable carcasses behind to rot. The 

exact toll is difficult to estimate because wounded 

animals often escape to die out of sight in the 

bush. The territory vigilance system has reduced 

poaching in recent years, but the community wardens 

have no official government standing and 

find it hard to face down rich hunters. 

This increases pressure on the Sirionó for selfrestraint 

if the game supply is to be sustainable. 

This is a challenge, but there are some traditions 

to build on. Holmberg (1969) noted that one 

band would not hunt animals near the campsite 

of another, perhaps out of respect for limits in 

game supply. Yet he went on to say that explicit 

ownership of a resource did not exist until it was 

actually harvested, and then it was considered to 

be private. The concept of personal ownership of 

material goods is the norm today in Ibiato, while 

the idea of formal legal ownership of a territory 

and its resources is quite new. So the Sirionó are 

struggling to reconcile community management 

of fixed natural resources with norms that permit 

individuals to use the resources for personal gain. 

They have to figure out how, as a community that 

has always had a very loose leadership structure, 

to police themselves as well as control outsiders. 

Obviously this strain is not confined to the question 

of hunting but extends to other aspects of the 

forest management plan and to new kinds of 

wealth in general. The community, for instance, 

must decide how to manage use of a small truck 

that was purchased for the firewood project. 

Who gets to use it for what and when has generated 

impassioned discussions. Listening to some 

of the talk, one wonders if a major flaw in project 

design is also being exposed. There is a push 

to do everything at once while financing is still 

available. The IWGIA grant and most of the others 

have a time frame of three years or less. 

Yet the road to self-determination is long and 

convoluted. The Sirionó have progressed amazingly 

far in evolving community institutions 

compared to a decade ago, but there is still farther 

to go if they are to successfully plan and 

achieve their own sustainable goals. The urgency 

for legalizing their commercial use of the 

resource base, forced by the new legislation, only 

makes the quick and easy answer of entering into 

subsidiary contracts with outsiders even harder to 

resist. One wonders what will happen if the 

near-term financing for setting up the integrated 

forestry plan runs out before community management 

processes cohere. What answer will the 

recently turned-away firewood contractor receive 

should he return on that day with a cut-rate offer 

of ready cash for timber? 

IV. The Search for a Long-Term 

Partnership 

The participatory planning process sparked by 

CIDDEBENI has been exemplary. It is being 

guided by awareness that indigenous people wish 

to participate on all levels of a project—from 

research, to planning, to implementation. If the 

goal is sustainability, this makes good sense. 

Community members are likely to be in possession 

of vital information without which a project 

is likely to fail. And by developing the skills to 

manage project activities, indigenous people further 

their capacity not only to defend their land 

but also to manage it for future generations. 

Environmentalists can contribute by providing 

communities like Ibiato with key information 

they need to make wise choices. Working at the 

community’s pace takes patience, but it is the 

only way to build a foundation for lasting partnerships 

in areas of mutual interest. Several lessons 

can be gleaned from the first steps toward 

forest and wildlife management now under way. 

First, the Sirionó, like other indigenous groups in 

Bolivia, clearly want to participate actively in the 

management of their natural resources. They 

have shown an insatiable hunger for training in


these topics in workshop after workshop. Both 

CIDDEBENI and CIDOB have emphasized the 

importance of holding training sessions in the 

community and opening them to everyone who is 

interested. In the past, individuals have left 

Ibiato for specialized training from NGOs, but 

what they have learned has been closely held. 

Perhaps this mirrors the Sirionó concept of ownership, 

with knowledge belonging to the person 

who finds and uses it. Opening information 

flows is essential if the community is to build the 

consensus that is needed to collectively manage 

communal resources. 

Second, the training must be conducted as a dialogue 

rather than a monologue. In discussing the 

community’s options and how environmental 

issues affect potential gains and losses, it is 

imperative to avoid jargon. CIDOB’s experience 

in several Bolivian communities is that indigenous 

people will rarely ask for clarification of 

terms that they do not understand if they sense 

the purpose of the encounter is not a two-way 

exchange of information. Like most nonspecialists, 

in fact, they simply stop listening. Even 

though both sides in Ibiato may speak Spanish, 

the technician must listen carefully if he or she 

hopes to speak clearly and be understood in turn. 

To further this process, it makes sense to use 

bilingual training materials. Local participants 

may all read and write Spanish, but they are more 

likely to take ownership of the material when it is 

also expressed in Sirionó. They feel it helps keep 

their language alive and provides a quick litmus 

test of whether or not the materials are relevant. 

Third, it is important to communicate with local 

leaders because they are often the gatekeepers of 

their communities. Of course outsiders are not 

always in the best position to judge who the leaders 

are. This is why starting activities in new 

areas as small research projects makes good 

sense. It allows both partners to learn more about 

one another, find out what the real issues are, and 

build the trust needed to devise solutions. 

Finally, issues and concepts should be framed in 

ways that touch a local chord. Abstractions must 

be grounded, wherever possible, in local realities 

and values. Take the question of biodiversity. 

The Sirionó understand that their resource base is 

threatened. People know they are lucky to still 

have game, and are concerned that harvests seem 

to be shrinking since the first measurements several 

years ago. They have heard others complain 

about how poor the hunting is in neighboring villages, 

and have seen with their own eyes the 

changes to the landscape around them. They 

realize that they inhabit a complex system of 

resources and are looking for synergies that multiply 

returns rather than more intensive exploitation 

that cashes out a resource. They were the 

ones who broadened a reforestation project 

beyond hardwoods for export, to hardy native 

species that would provide a food source for 

game as well as firewood for local markets. The 

trade-off being worked out between bee and firewood 

producers is also based on multiple use of 

resources. Indigenous peoples have usually 

relied on a variety of sources for subsistence, and 

they seek to add income-generating activities to 

the mix. It is a lifestyle that mirrors and depends 

on the biodiversity around them. 

Recently a workshop held in Ibiato to design the 

wildlife census introduced a larger notion of biodiversity 

conservation by talking about the 

immense Amazonian Corridor of which the 

Sirionó are a tiny and marginal part. Some of the 

fish that breed in local waters during the rainy 

season work their way much farther downstream. 

And the jabiru stork that arrives to feed on them 

is a mythic bird for the Xavante Indians in Brazil 

hundreds of miles to the north. Workshop participants 

expressed pride in having the opportunity to 

play an important role in keeping this system 

functioning, especially since changes to the land 

around Ibiato may make a Sirionó TCO a vital 

island for migrating species. Still, they wondered 

what direct benefits that role might confer. 

One answer comes from an idea being tried elsewhere 

by other indigenous groups. Word has filtered 

into Ibiato about ecotourism, and the 

Sirionó quiz anyone who seems to know more 

about it. They like the idea that the land could 

be left much as it is and still provide the community 

with the basic elements of a good life. 

And there are reasons for finding the idea plausible. 

The international airport at Trinidad is 

accessible, the pre-Columbian mounds are archeological 

sites available for exploration, wildlife 

can be viewed at water holes, and the people of 

Ibiato generally like visitors and have the language 

skills to communicate in Spanish. There


are also reports that some of the last remaining 

blue-throated macaws (Ara glaucalularis) are 

resident in part of the territory. The Sirionó are 

definitely intrigued by this option but not at all 

sure how to make it work. Residents have heard 

about highland communities like Taquile in Lake 

Titicaca getting into the tourist business without 

destroying the quality of local life (Healy 

1982/83), as well as similar efforts by lowland 

Bolivian groups in Pilon Lajas, Madidi, Isiboro 

Secure, and other national parks. Now there is 

talk in Ibiato of family-run cabins that can be 

rented to visitors. 

Of course, this dream is rife among many peoples 

worldwide—from Zimbabwe to the 

Ecuadorian Amazon. Finding what it takes to 

compete in this global market is probably beyond 

the Sirionó for the moment since it would require 

substantial outside resources to succeed. 

Nonetheless the mere fact that the Sirionó have 

heard of the possibility and are interested testifies 

to the window that has opened up for international 

conservation groups to play a larger role. 

Only a dozen years ago much of what the Sirionó 

knew about the rest of Bolivia, much less the 

world, was filtered through the sensibilities of a 

few North American missionaries. The Sirionó 

now not only have a different set of missionaries, 

in the form of NGO staff members, to bring in 

the good news, they are plugged into their own 

indigenous networks. Transnational confederations 

like COICA and its national federation 

members are available as transmission belts for 

ideas and common concerns. The desire to 

defend their land and use it sustainably is widely 

shared among indigenous groups throughout the 

region and offers an immense opportunity for 

conservation groups willing to commit resources 

to build partnerships that preserve biodiversity. 

Certainly the Sirionó are willing to play their 

part. They are about to make their first small 

contribution to building a more comprehensive 

database about the biodiversity of the Amazon 

Corridor. Results of their wildlife census are 

being written up for presentation at an international 

conference on wildlife being held in 

Paraguay, and Sirionó speakers will be there to 

deliver the papers. 

When they look around at the other participants 

they will see many people of goodwill, some of 

them scientists in jackets and ties who are concerned 

about preventing global warming and preserving 

the world’s genetic heritage. The Sirionó 

will also see other representatives from indigenous 

peoples who have been invited to this particular 

table to tell what they know. When they 

return home, the Sirionó participants are likely to 

have a fuller view of how biodiversity and cultural 

diversity overlap. And then they will look 

around and take up the work again of trying to 

make a living from the land. 

They will examine the possibilities of sustainably 

harvesting Paraguayan caiman in addition to the 

collared peccary. The Sirionó sustainably harvested 

this species before the sale of wild animals 

was banned in Bolivia (Stearman and 

Redford 1992). Recently the government made 

an exception to the general prohibition in order 

to explore the possibility of a controlled caiman 

harvest from lowland Bolivia. The Sirionó 

wanted to participate but were excluded from the 

first trial harvest, which the government planned 

with three large ranches. The Sirionó must be 

ready to participate when and if the program 

expands from the experimental stage. 

Capybara may also be an excellent commodity. 

They are abundant in the marshes of the proposed 

TCO, and are considered a pest since they 

can devour large tracts of rice or corn. Although 

they are not hunted for their meat, which is said 

to be bitter and carries the unfounded stigma of 

being a carrier of leprosy and other diseases, 

there is a demand for the skins, and the meat 

could find other markets outside the Beni where 

customs are different. Commercial feasibility is 

enhanced by the capybara’s prolificity, and management 

tools have been developed in Venezuela 

for sustainably harvesting them. That task is 

simplified by their concentration around open 

water holes during the dry season, making them 

easier to census. 

The potential for marketing collared peccary 

skins is also being explored. The skins are in 

steady demand by luxury glove makers in Europe. 

Presently the Sirionó waste their peccary skins 

because they cannot reach this market. Doing so 

will require a management plan for sustainable 

harvests and certification from the IUCN and 

other international organizations. Developing 

some of the tools needed for this is at the core of 

the wildlife censuses now under way.


The main limiting factor of all these income-generating 

ideas is the lack of business experience. 

The Sirionó run their household economies, but 

managing community finances is new territory. 

A microenterprise credit program that loans 

small groups $50 to purchase apiary materials 

could become a model. Whichever option finally 

emerges, the community structure (and municipal 

government) must play the role of watchdog over 

the commons. Here too the Sirionó are anxious 

to know more. 

That brings us back to the integrated forestry management 

plan. The process facilitated by CID- 

DEBENI has been a major step forward, but its 

development-oriented funders have only committed 

themselves to a two-year program, a perilously 

short period for a natural resource management 

project, even under ideal circumstances. There 

has been insufficient time to explore options other 

than firewood production, and unless the NGO 

finds additional support elsewhere, the sustained 

monitoring and feedback effort this complex initiative 

needs to take hold and prosper may dry up. 

A well-designed, sensitively implemented effort 

may fall short because donors were locked into 

their own schedule rather than paying attention to 

the community’s capacity to absorb and master 

needed skills. A succession of short-term projects 

is also not the answer since communities take their 

own time warming up to a professional, and by the 

time they do, the technician is already moving on 

to the next stop. This would be particularly 

destructive in the case of the Sirionó, who are trying 

to master the big picture. 

As international conservation organizations think 

about working in partnership with indigenous 

groups, they need to keep this in mind and commit 

themselves to a longer-term process. This 

will give indigenous groups like the Sirionó and 

their prospective partners time to build a relationship 

and explore common interests in conserving 

the land. 

Endnotes 

1. I want to thank the Sirionó people for their 

participation and congratulate them on their 

excellent efforts towards self determination. I 

thank the funders of my research, which stimulated 

the process described in this chapter: the 

Biodiversity Support Program, World Resources 

Institute, The Nature Conservancy, L.S.B. 

Leakey Foundation, Scott Neotropical Fund, 

World Conservation Society, Organization of 

American States, American Association of 

University Women, and the University of Florida. 

I also thank those funders that have allowed the 

work to continue, including Tyresso Peace and 

Arbitration Society, International Work Group for 

Indigenous Affairs, World Conservation Society, 

and Department for International Development. I 

want to recognize the contribution of Zulema 

Lehm and John Kudrenecky, among others from 

CIDDEBENI, and the participation of the local 

indigenous organizations such as Consejo 

Sirionó, CPIB, and CIDOB. 

2. Comparable figures for other rural areas and 

urban areas of the Beni are 75 percent and 87 

percent, respectively (CIDDEBENI 1996). 

3. What would become the Sirionó wildlife project 

began as my dissertation research project. It 

was supported by small grants from the L.S.B. 

Leakey Foundation; the Scott Neotropical Fund 

at Lincoln Park Zoo; the Program for Studies in 

Tropical Conservation and the Tropical 

Conservation and Development Program of the 

University of Florida; the Wildlife Conservation 

Society; the Organization of American States; the 

American Association of University Women; and 

the Biodiversity Support Program, a USAIDfinanced 

program with WWF-US, the World 

Resources Institute, and The Nature 

Conservancy.


References 

Balée, W. 1987. Cultural Forests of the 

Amazon. Garden 6:12–14. 

———. 1988. Indigenous Adaptations to 

Amazonian Palm Forests. Principes 32 

(2):47–54. 

———. 1989. The Culture of Amazonian 

Forests. In Resource Management in Amazonia: 

Indigenous and Folk Strategies, eds., D.A. Posey 

and W. Balée, 1–21. Bronx, N.Y.: New York 

Botanical Garden. 

CIDDEBENI. 1996. Diagnóstico Participativo 

Socioeconómico del Territorio Sirionó. CID- 

DEBENI, Trinidad, Bolivia. Photocopy. 

Denevan, W. M. 1966. The Aboriginal Cultural 

Geography of the Llanos de Mojos of Bolivia. 

Berkeley: University of California Press. 

FAO/WHO. 1973. Energy and Protein 

Requirements: Report of a Joint FAO/WHO Ad 

Hoc Expert Committee. [United Nations Food 

and Agriculture Organization/World Health 

Organization] WHO Technical Report, Series 

No. 522. Geneva: WHO. 

Healy, Kevin. 1982/1983. Lake Titicaca’s 

Campesino-Controlled Tourism. Grassroots 

Development 6 (2)–7 (1):3–10. 

Holmberg, A. R. 1969. Nomads of the Long 

Bow: The Sirionó of Eastern Bolivia. Garden 

City N.J.: The Natural History Press, American 

Museum of Natural History. 

Lehm, Z. 1991. La Demanda Territorial del 

Pueblo Sirionó. CIDDEBENI, Trinidad, Bolivia. 

Photocopy. 

Montaño, M. E. 1996. La Explotación de Miel 

Silvestre y su Importancia en la Comunidad 

Indígena Sirionó de Ibiato en el Beni, Bolivia. 

Bachelor’s thesis, Universidad Autonomo Gabriel 

Rene Moreno, Santa Cruz, Bolivia. 

Pulliam, H. R. 1988. Sinks, Sources, and 

Population Regulation. American Naturalist 132 

(5):652–661. 

Stearman, A. M. 1987. No Longer Nomads: The 

Sirionó Re-visited. Lanham: Hamilton Press. 

Stearman, A. M. and R. H. Redford. 1992. 

Commercial Hunting by Subsistence Hunters: 

Sirionó Indians and Paraguayan Cayman in 

Lowland Bolivia. Human Organization 51 

(3):235–244. 

Townsend, W. R. 1995. Living on the Edge: 

Sirionó Hunting and Fishing in Lowland Bolivia. 

Ph.D. diss., University of Florida, Gainesville. 

———. 1996. Nyao Ito: Caza y Pesca de los 

Sirionó. La Paz, Bolivia: Instituto de Ecología. 

———. 1997. La Participación Comunal en el 

Manejo de Vida Silvestre en el Oriente de 

Bolivia. In Manejo de Fauna Silvestre en la 

Amazonia, eds., T. G. Fang, R. E. Bodmer, R. 

Aquino, and M. H. Valquie, 105–109. La Paz, 

Bolivia: Instituto de Ecología.

CHAPTER 6 

WWF’s Partnership with the Foi of 

Lake Kutubu, Papua New Guinea 

Joe Regis 1 


According to a legend of the Foi people who live 

along the shores of one of the world’s natural 

wonders, Lake Kutubu was once not a lake at all 

(Craft Works 1992). It was a dry and thirsty valley 

nestled between limestone pinnacles. Men 

did not live there because the rains soaked into 

the limestone, leaving behind nothing to drink. 

But there were a few women who managed 

somehow to eke out a living anyway. One day a 

dog they owned came prancing into the village, 

licking his lips, the picture of health and vitality. 

Obviously he had found water, but where? 

The women decided among themselves that the 

next day they would follow the dog to find out. 

They tied a strong string to his back leg while he 

slept, and rose the next day to follow close 

behind as the dog loped through the forest. 

Finally he entered a clearing where there was a 

huge tree, and without looking left or right he 

jumped straight through a hole in the trunk and 

vanished. The hole was too small for a person to 

squeeze through, but the women could hear 

splashing coming from deep inside. The thought 

of not being able to get at the water made the 

women angry, so they took their stone axes and 

whacked the tree again and again. 

Finally it fell with a great crash. And close behind 

came a great spout of water that quickly spread 

over the land. The women ran as fast as their legs 

would carry them uphill, scrambled over rocks and 

snapped tree limbs, but still the water climbed 

faster and higher. They cried out spells and incantations, 

but were swept up by the rising water and 

drowned. They remain by the shores of the lake 

to this day in the form of palm trees. 

For uncounted generations, the ancestors of the 

Foi lived by the waters of Kutubu, which means 

“the lake that came out of a tree.” The landscape 

was lush and abundant, and it was difficult to

92 The Foi in Papua New Guinea 

imagine how any of this could change. But in 

the 1980s another hole was opened in the Earth, 

releasing a different kind of flood. The discovery 

of petroleum brought a tide of change that still 

has not crested. Like the first flood, this one is 

fraught with peril and opportunity. The oil consortium 

has pledged to funnel resources into 

efforts led by WWF to manage the change so that 

the people who live in the area can preserve their 

resource base and the richness of their own cultures. 

Not all of these efforts have fared well, but 

one in particular, focused on the rare fish that 

inhabit the lake, has shown great promise as a 

model that local people can build on and follow. 

This case study examines that effort. To provide 

context, it begins with a country and regional 

overview of the land and its people. It then looks 

more closely at how the Lake Kutubu Fish 

Management Project evolved. It concludes by 

drawing lessons that may be useful to others. 


Papua New Guinea (PNG) comprises the eastern 

half of New Guinea, the world’s largest and highest 

tropical subcontinental island; the islands of 

Bismarck Archipelago; the northernmost part of 

the Solomon Group; and some 600 smaller 

islands. PNG’s 465,000 square kilometers 

support a remarkable range of equatorial ecosystems—from 

high alpine peaks that are periodically 

dusted with snow, to extensive pristine tracts 

of steamy lowland tropical rain forest snarled by 

river deltas. And this landscape is home to one of 

the planet’s most unique and diverse biological 

endowments. PNG is estimated to accommodate 

5 percent of the world’s biodiversity in less than 1 

percent of its land area. 

The mainland coastline is rich in species and 

includes extensive mangrove swamps, lagoons, 

wetlands, coral reefs, and atolls. Inland is one of 

the world’s last frontiers with extensive stands of 

tropical rain forest, totaling some 36 million 

hectares, or roughly 80 percent of the country’s 

total land area. The forest flora is one of the richest 

on Earth and exhibits high endemism, about 

53 percent. 

This bounty has sustained human subsistence for 

millennia and continues to provide for the more 

than 85 percent of the population who reside in 

rural communities. The incredible natural diversity 

is mirrored by PNG’s unparalleled concentration 

of ethnolinguistic and cultural diversity. The 

population of 4.9 million people is divided among 

more than 800 languages and nearly as many cultures. 

This is perhaps the only country in the 

world where indigenous peoples make up more 

than 95 percent of the population and where more 

than 97 percent of the land is still controlled by 

indigenous landholders under traditional systems 

of tenure. Indigenous communities are closely 

tied to the ecosystems they inhabit. Renewable 

biological resources are the mainstay of these 

people and provide the foundation for sustainable 

economic growth and new employment. 

The forests provide people with remedies for illness 

and material for traditional homes and clothing, 

and are the domain of ancestral spirits that 

extend far back in mythological time. Since traditional 

tenure prevails, local people are the stewards 

of the forests on which they depend. 

Resource and ecosystem conservation is not only 

essential to the well-being of communities, but is 

also in their hands. 

2.1 Land Tenure 

Most land in Papua New Guinea is held in common 

by kinship groups under customary laws 

that generally set out permanent and absolute 

rights. Knowledge of land rights and boundaries 

has been passed orally from generation to 

generation. There is no system of registration or 

documentation to provide legal proof of ownership. 

Past attempts by colonial administrators 

and more recently by a World Bank/IMF-sponsored 

“Land Mobilization Program” to register 

titles in the name of “development” have met 

with fierce resistance and failed. 

Customary land is alienable under terms that 

vary by group, although ownership is confined to 

the biological resources within a given area and 

does not govern subsoil usufruct. This is one of 

the few areas in which the modern legal system 

has jurisdiction over changes in ownership. Only 

3 percent of all land has been alienated, most of 

it held in government leases and the rest in freehold 

titles granted before the early part of the 

twentieth century. Any acquisition of territory by 

the state is subject to provisions of the Land Act 

that require an exclusively “public purpose” and 

“a reasonable justification.”

The Foi in Papua New Guinea 93 

Some legal provisions would seem to include 

conservation as one of those public purposes. 

The fourth goal of the Constitution calls for the 

conservation and use of natural resources and the 

environment “for the collective benefit of all” and 

in ways that guarantee “replenishment for future 

generations.” The Directive Principles of the 

Constitution advocate “all necessary steps…to 

give adequate protection to our valued birds, 

animals, fish, insects, plants and trees.” Yet constitutional 

protection also gives customary landowners 

protection from usurpation, deprivation, 

or infringement of their rights to property. In 

practice this means that any conservation efforts, 

even those that are state-led, must involve the full 

participation of landowners in the planning and 

decision-making process and enlist their cooperation 

in order to succeed. 

Disputes over land are common and traditionally 

often led to warfare that settled things for a time 

but planted the seeds of the next conflict. The 

Land Disputes Settlement Act of 1975 tried to 

bring some coherence to the process. Covering 

disagreements over boundaries, customary ownership, 

usufructuary rights, and other claims, the 

act establishes a legal framework for amicable 

mediation that extends from local land courts to 

appeals at the regional and national levels. But 

the act cannot guarantee certainty of title by a 

decision at any level. Since decisions occur only 

within the context of customary rights, they are 

subject to later disputation should circumstances 

change among the contesting parties. Landowners 

do not have the right to mortgage their 

property under customary law, and banks generally 

are unwilling to issue loans using customary 

land tenure for collateral. 

2.2 The Kikori Integrated Conservation and 

Development Project (ICDP) 

The Kikori Integrated Conservation and 

Development Project (ICDP) was established in 

1993 with funding from an oil consortium to promote 

sustainable development among the peoples 

of the Kikori River watershed. Phase I of the 

ICDP ran from 1993 to 1997, and Phase II began 

in 1998 and will run through 2000. It covers a 

mostly tropical rain forest area of more than 2.3 

million hectares, or approximately 23,000 square 

kilometers in the Gulf and the Southern 

Highlands provinces of PNG. This area represents 

6 percent of the country’s land area and 

harbors 30 to 50 percent of New Guinea Island 

species in several major animal groups (see map 

6.1) (Leary et al. 1996). 

The Kikori River catchment is a vast, intact, and 

largely undisturbed biogeographic unit. The area 

is very diverse in topography, landforms, relief, 

soils, and vegetation. It extends from the precipitous 

Doma Peaks in the Southern Highlands to 

the Gulf of Papua, encompassing habitats as distinct 

as Lake Kutubu, the nation’s second largest 

freshwater body; the Great Papuan Plateau; 

rugged limestone ranges; extinct volcanoes; 

extensive tropical rain forests; and complex lowland 

river deltas. 

Recent surveys across key sites in the project 

area testify to the high level of biodiversity. The 

project area is also rich in cultural diversity, with 

about 20 different ethnolinguistic groups among 

the more than 80,000 people. 

The Kikori ICDP was envisaged as a pioneering 

model project that would enlist maximum community 

participation to achieve conservation and 

sustainable development initiatives. Its ongoing 

mission is to help local people identify and refine 

culturally appropriate strategies to improve their 

subsistence and generate needed income, while 

protecting the long-term resource base of biodiverse 

ecosystems in the area. 

The diverse stakeholders involved in this process 

include local landholders and their organizations, 

national and provincial government agencies, 

Chevron Niugini and its joint venture partners, 

and various nongovernmental organizations 

(NGOs). The collaboration between WWF and 

Chevron and its partners is a pioneering effort by 

the oil industry to demonstrate responsible corporate 

citizenship in the communities affected by 

its business activities. Chevron Niugini and its 

joint venture partners have provided substantial 

funding to the project to protect the rich biodiversity 

of the Kikori watershed region and benefit its 

people. The environmental impact of the oil 

project has been minimal. 

Most of the communities involved are in areas 

that are remote even by PNG standards. They 

are thinly populated and widely scattered, they 

lack basic services, and they are on the periphery 

of the market economy but feel its pull. They are 

blessed with abundant natural resources.


In general, they want project activities to generate 

cash income and improve access to basic 

services. The resources they own, particularly 

the forests, are perceived to be the sole means of 

achieving these goals. Therefore, they are 

extremely vulnerable to timber companies that 

employ devious means to lure landholders into 

contracts for industrial logging. For many communities, 

logging has become almost synonymous 

with development. 

III. Lake Kutubu and Sustainable 

Resource Management 

This case study focuses on one small component 

of the Kikori ICDP and covers an area of less 

than 8,000 hectares or less than 3.5 percent of the 

total project area. It examines the partnership 

that WWF developed with the Foi people living 

on the shores of Lake Kutubu to help them 

develop and manage sustainable subsistence fisheries. 

The ecosystem involved is the catchment 

area of Lake Kutubu, which is held in customary 

ownership by the clan groups of villages around 

the lake (see map 6.2). 

Lake Kutubu is Papua New Guinea’s second 

largest lake and its largest mid-altitude lake. 

This inland freshwater body sprawls over approximately 

4,930 hectares nestled in mountainous 

terrain 800 meters above sea level. The lake lies 

in a narrow valley flanked by rugged limestone 

ranges and precipitous hills that jut up 1,400 

meters high and are covered by pristine tropical 

rain forest. The lake, which has a maximum 

depth of about 80 meters, is approximately 18 

kilometers long and about 4 kilometers across at 

its widest point. 

The people living along its shores call it the 

“mother of water.” Geologists suspect the lake 

Map 6.1 The Kikori River Watershed Area Covered by the Kikori ICDP 

Source: Steve Wright, Chevron


was formed some 10,000 years ago when its 

southeastern end was blocked by volcanic 

deposits (Sullivan et al. 1990). 

3.1 Biodiversity Value of Lake Kutubu 

Lake Kutubu is of global significance and has 

been described as the most unique lacustrine 

habitat for fish in the entire New Guinea and 

Australasia region (Allen 1995). No other lake 

in all of Oceania has as many endemic species. 

Of the 16 freshwater fish species occurring in 

the lake, at least 12 are not known to occur anywhere 

else in the world (Allen 1995; T. Leary, 

personal communication). 2 Another four species 

of freshwater fish and two species of crustaceans 

have been recorded either in the lake or in the 

streams that feed it, constituting a total fishery 

of 22 species on which local people can draw. 

Only lakes Sentani and Jamur in Irian Jaya are 

richer in the number of freshwater fish species, 

but their fisheries do not exhibit a comparable 

level of endemism. 

The diversity of terrestrial fauna in the area is 

also great. Burrows (1995) recorded 146 species 

in the Moro/Agogo/Lake Kutubu region. 

Jaensch (1997) recorded a further eight bird 

species. Orsak and Eason (1995) recorded a high 

diversity of 656 moth species at a site near Moro, 

not far from the lake. Lake Kutubu also supports 

more species of birdwing butterfly than any other 

known site in PNG (L. Orsak, personal communication). 

Balun (1995) states that the flora in 

this area also has some unusual aspects, such as 

the occurrence of Nothofagus grandis at altitudes 

as low as 800 meters. This species usually 

occurs above 2,000 meters. Another unusual 

plant occurrence is that of Tapeinocholos sp., 

which is normally a lowland species but was 

recorded in this area 800 meters above sea level. 

Map 6.2 Location of Major Villages on Lake Kutubu 

Lake Kutubu Villages 

Villages 

Lake 

Swamp 

Roads 

Rivers 

Lake 

Kutubu 

Source: Leary 1997


Leary and Serin (1997) recorded 31 species of 

native mammal on Mt. Kemenagi, which rises 

above the lake. This included the rare longbeaked 

echidna and the rare three-striped 

dasyure. A new rat species (Rattus nov. sp.) was 

also discovered in abundance on Mt. Kemenagi 

during the survey. 

Jaensch (1997) observed the occurrence of 

swamp forest on peat substrate occupying an area 

of approximately 1,000 hectares. His preliminary 

investigations suggested a rich diversity of 

plant and animal species. It is suspected that the 

peat swamp forest may also play a critical role in 

filtering floodwaters before they reach the lake 

and preventing degradation by silt and pollutants. 

3.2 The People of Lake Kutubu 

The inhabitants of the shores of Lake Kutubu are 

culturally part of a larger grouping of 169 clans 

called the Foi, who also inhabit the broad Mubi 

River Valley and the area east of the lake near the 

border of Southern Highlands and Gulf provinces. 

Large tracts of uninhabited forest and mountainous 

terrain separated the Foi from their closest 

neighbors until recently, when roads were built 

for oil rigs. The group most closely related to 

the Foi, both culturally and linguistically, are the 

Fasu, 1,200 of whom live southwest of the lake 

toward the upper reaches of the Kikori River in 

an area east of Hegigio River. The Foi of Lake 

Kutubu traditionally have accepted Fasu immigrants 

and intermarried with them. 

Foi people speak Foime, which has only minor 

dialectal differences from the Fasu language. In 

all, there are around 7,000 Foi, dispersed into 

three geographical groupings. The biggest group 

lives in villages along the upper Mubi River in the 

Pimaga area, southeast of Lake Kutubu. They are 

called the Awamena, or the northern hill people. 

The smallest group is the Foimena, or Foi people. 

They are often referred to as the Lower Foi since 

they live along the lower Mubi River south of 

Pimaga. Some of their villages are very remote. 

The 1,600 or so people living on Kutubu’s shores 

are called Ibumena or Gurubumena, or the Lake 

People. They are a mixture of Foi from the upper 

and lower Mubi River, and the previously mentioned 

Fasu people. There are seven main villages 

and a large number of small settlements, some 

consisting of only one or two families. The Lake 

People still lead a largely subsistence lifestyle, 

relying on fish and sago as dietary staples. 

The Foi are one of nearly 20 ethnic groups in the 

Kikori River catchment who pursue similar subsistence 

lifestyles. However, several environmental 

and cultural differences distinguish them 

from their neighbors. 

3.3 The “Long House” Community, Social 

Organization, and Leadership 

The hallmark of a Foi village is the centrally 

located long house. The culture is strongly communal, 

and the long house symbolizes that. It is 

the social and ceremonial heart of the village and 

reflects how the community is organized. All 

important political and social events and decisions 

take place there. It is also called the “men’s 

house,” because all male members of the community, 

married or not, live there. Women are not 

allowed inside, a practice that clearly demonstrates 

how women are peripheral to the social 

and political processes governing the community. 

By tradition, they live with their children in small 

separate houses that flank either side of the long 

house. Behind each of these rows there is usually 

a “confinement” house for women who are giving 

birth or are in menstruation. 

The long house is usually bisected longitudinally 

by a central corridor. On either side, sleeping 

platforms rise up about 10 inches off the floor, 

separated at regular intervals by fireplaces or 

fireboxes. To those who can read it, the occupation 

of specified quadrants in the long house by 

individuals and groups provides a social map of 

their leadership, status, and social alliances. 

Every individual has a web of relationships determined 

directly by descent and kinship, or through 

affinal links when an outsider marries a local 

woman. One claims rights over land and resources 

or obligations from relatives by invoking these 

relationships. The dominant mode of descent is 

patrilineal, which confers membership in a clan. 

Each clan is figuratively referred to as a tree, and 

kinship ties are described by tracing its branches. 

Foi clans are totemic and few in number. They 

are spread over many long house communities, 

however, so that each long house is associated 

with two or more other communities to form distinct 

units that are described as regions, tribes, or 

extended communities. The land-holding unit of


a particular long house is the clan segment whose 

members reside there and share food together. 

Individuals inherit from their ancestors the right 

to use certain pieces of the clan’s territory, and 

this right is often continuous so long as the land 

use is maintained. Right to unclaimed land can 

be asserted by continuous use of it. Each long 

house community also has territories, usually 

hunting grounds held in common by the men. 

Traditionally Foi communities were not headed by 

chiefs, but were dominated by “big men” whose 

leadership was earned rather than inherited. Rather 

than invoking institutional authority, big men 

relied on their charisma and accomplishments to 

wield power. In any given long house, two or 

three men always emerged as acknowledged leaders 

who had earned prestige and built extensive 

personal connections with other communities. 

As we have seen with the sleeping arrangements 

and the discussion of land rights and clan and 

affinal ties, each community is like a web in its 

formation. The ability to negotiate the strands 

of divergent interests and their connections to 

other communities shapes the pattern of leadership 

and the range of power and influence each 

leader can exert. 

Among the Foi, complex networks of marriage 

and matrifiliation between individual families 

cut across the grain of long house community 

organization so that a web of personal and familial 

alliances, rather than any formal political 

unity, link communities together. Individuals or 

individual families, by and large, alter the balance 

of forces, influences, and interests that link 

the various communities. 

However, the petroleum project has altered the 

terrain in which leadership functions and created 

new institutional forms for dealing with social 

and economic relations beyond the scope of traditional 

means. National legislation established a 

framework for setting up legally chartered 

Incorporated Land Groups (ILGs), Landowner 

Companies (LANCOs), and Landowner 

Associations (LAs). The Incorporated Land 

Groups Act authorizes landowner ILGs to negotiate 

with government, companies, and developers 

and receive royalty, equity, and compensation 

payments. The Business Groups Incorporation 

Act enables ILGs to establish LANCOs to 

engage in commerce, provide direct or indirect 

employment, and undertake contracts or subcontracts 

from developers. These two pieces of legislation 

have enabled customary land groups to 

enhance their collective decision capacity and 

create a more formal leadership structure. 

Collective decision capacity is further enhanced 

when ILGs band together to form a Landowners 

Association to negotiate better terms from an 

outside developer. These new formalized institutions 

have played a significant role in helping 

landowners get a fairer deal from developers and 

the national and provincial governments, and 

have generated spillover benefits for communities. 

But these institutions also suffer from clan 

rivalries, mismanagement, and corruption. 

They have not ended the old disputes, but moved 

them to a new battleground on which finding resolution 

requires new tactics and leadership skills. 

Major development activities such as logging, 

mining, or oil extraction tend to escalate existing 

land disputes and revive dormant ones because of 

the revenue streams they generate. The 1997 

Social Impact Survey carried out for the Moran oil 

project near Lake Kutubu found a 700 percent 

increase in land disputes within a five-month 

period and a doubling of disputes in the Kutubu 

petroleum development project area. Similar 

reports came from the Gobe petroleum project 

area not far from the territory of the Lower Foi. 

3.4 Gender Relations 

In Foi society, all major social process begins 

with the culturally defined and historically determined 

sexual separation of men and women and 

distinction between male and female dominions. 

Traditionally, Foi women had no role in the leadership 

structure and were excluded in all decisions 

governing land and other resources. The 

process of change initiated by developments such 

as the petroleum project has had little impact on 

the traditional status and role of women. 

Although men and women as married couples are 

responsible for generating food for the family, 

there are clearly defined gender roles in the division 

of productive labor. Traditionally, men take 

their wives and children and live deep in the bush 

for weeks or even months during the hunting season. 

The men do the hunting for flying foxes, 

cassowaries, birds, tree kangaroos, and snakes, 

and butcher, cook, and distribute the meat. 

Women help with fishing, and also forage for


bush fowl eggs, edible wild plants, and small animals 

that can be caught by hand. 

Even in the garden, where women do most of the 

planting, weeding, and harvesting, men have a 

controlling role. They clear the space and control 

the planting and cooking of certain crops, 

such as banana, breadfruit, ginger, and sugarcane. 

Crops controlled by women include the sago 

palm, greens, and vegetables. 

The Subsistence Fish Catch Monitoring Program 

of Lake Kutubu identified that women did most 

of the fishing, but men dominated the use of 

spearing, spear-diving, and mixed gill nets. The 

prevailing pattern of gender relations and the 

exclusion of women from decision-making 

processes would limit partnership in the fishery 

project with WWF. 

3.5 The Changing Culture of Resource 

Management 

The Foi, like other indigenous peoples in PNG, 

are tied on many levels to the land and its plants 

and animals. Local people value Lake Kutubu not 

only as a provider of sustenance, but also as a 

fount for their social identity and cultural survival. 

Foi subsistence activities include slash-and-burn 

gardening, tree-crop cultivation, fishing, hunting, 

foraging, and pig husbandry. The sago palm is a 

multipurpose resource. Sago is the staple food, 

and women spend considerable time processing 

the starchy pulp year-round. The palm also provides 

building material for houses and fodder for 

pigs, and is a source for protein-rich grubs. 

Forests provide materials used for rituals, sorcery, 

and body decorations. For generations they also 

have provided items that the Foi could trade to 

acquire what was scarce or otherwise unavailable. 

Traditionally, economic productivity did not result 

in the accumulation of wealth, but provided the 

means for ceremonial feasting, exchanges, and 

presentations that nurtured social and political 

harmony and stability within the community and 

between the community and its allies, rivals, 

affines, and trading partners. Exchange and reciprocity 

are foundational not only among the Foi 

but are underlying principles of Melanesian social 

and cultural organization generally. 

Foi culture is closely attuned to the natural world 

through changes in resource availability during 

the five recognized seasons. These changes affect 

the diet, the distribution of labor among men and 

women, the pattern of resource use, residential 

patterns, and other activities, and reinforce the 

apparent seamlessness of nature and culture. 

Foi clans are totemic, and the Foi believe the 

spirit that animates the body and leaves it in 

death also inhabits certain plant and animal 

species. For instance, a man who is murdered or 

killed during battle becomes far more dangerous 

and takes the form of a cockatoo. Some departed 

spirits inhabit tabia trees, whose bark is used to 

cure genaro sickness. In addition to ghosts of 

dead people, the forest is alive with other dangerous 

spirits that take revenge and cause illness 

when certain conditions are not met or transgressions 

occur. Feelings of reverence and fear, 

embodied in myths and beliefs, shape how and 

when resources are used and who may use them. 

Because the social and cultural fabric is so tightly 

interwoven with the biodiversity that provides 

material sustenance, the Foi perception of 

“ecosystem” is markedly different from the 

Western scientific concept. The natural world 

includes human beings and their spiritual, cultural, 

and economic activities from resource-use patterns 

to gardening cycles to modes of territorial ownership. 

The Foi do not see themselves operating on 

the ecosystem but participating within it. This 

cosmic unity becomes a celebration of “a community 

of life” in which there is interdependency and 

harmony among humans and nonhumans. To the 

Foi, biodiversity is the “capital inheritance” that 

has sustained them for millennia and provided the 

affluent foundation for their culture. 

The cultural value of individual flora and fauna, 

however, may transcend their biological importance 

in the ecosystem. So the indigenous peoples 

of PNG are not passive parts of the 

ecosystem. They have had impact on the environment. 

Vast anthropogenic grasslands in the 

highlands testify to how traditional societies 

since antiquity have modified the natural environment 

in meeting their subsistence needs. 

It can be argued that whatever conservation has 

occurred was a product of circumstance rather 

than intention, and transpired because population 

densities were low and technologies simple 

(Bulmer 1982). Though drawing generalizations 

in PNG may not be appropriate due to its cultural


heterogeneity, it may be said that the relations of 

the forest-edge communities to their environment 

was largely mediated by traditional religion and 

beliefs about sorcery. Restrictions on natural 

resource use that resulted in conservation were 

largely aimed at protecting the welfare of 

humans and inspired by the need to assuage forest 

spirits, or masalai. This reveals a dichotomy, 

beneath the surface unity, between the “natural 

world” and the “social world.” The Foi believe 

the former is owned and tended by the masalai, 

while the ancestors protect the latter. Bulmer 

suggests that this traditional cosmogony may be 

incompatible at its root with the notion of conservation 

because it blurs the causal relationships 

between human action and environmental degradation. 

Caught between competing explanations 

of sorcery and the wrath of ancestors or masalai, 

the governing assumption is that man, not nature, 

is vulnerable. 

Because there is no experience of resource 

scarcity or large-scale environmental disaster, a 

utilitarian view prevails. People are generally 

concerned with the immediate benefits of hunting 

and gardening rather than conscious of a need to 

manage resources sustainably. In contemporary 

PNG, monetization of the economy, increased 

exposure to the outside world, changing consumption 

patterns, and population growth have 

changed the balance. Attitudes that underlay 

hitherto benign subsistence practices are being 

transformed into ecologically damaging ones. 

Land and other resources are increasingly perceived 

as a potential source of cash to meet 

expanded needs that have been stimulated by the 

influx of enormous private overseas investments 

in natural resource extraction. 

Thus far notions of conservation have centered on 

preserving traditional claims to land and its 

resources. This, too, poses a hidden danger to the 

environment. Ownership can be weakened or 

even forfeited by nonuse of land and its resources. 

Land claims are thus in constant peril from other 

individuals and groups, and must be constantly 

renewed either through active use or by bestowing 

temporary usufruct to others (Giddings 1984). 

The pivotal question that remains undecided here 

and elsewhere is what constitutes proper use. 

Conservationists thus face the problem of finding 

access points within a given culture in order to 

raise their concerns and have them heard. 

Environmentalists view nature as vulnerable and 

believe it is the responsibility of humankind to 

protect and preserve it. For indigenous landowners, 

nature is often a powerful omnipresence that 

falls outside human control and responsibility. 

For most indigenous communities, the natural 

environment is not something apart, to be valued 

for itself. It is what provides for their needs. 

Perhaps the most pressing of those needs is the 

desire for cultural integrity and continuity that 

can be bequeathed to future generations. 

Environmentalists need to learn how to make 

their case for conservation of biodiversity by 

finding and developing strategies that allow people 

to see how their cultural identity is linked not 

only to protecting their claims to the land but to 

sustainably managing its resources. 

This is even more complex than it sounds since 

the cultures in question are often under duress or 

are no longer intact. In the case of the Foi, 

recent changes brought by Christian missions and 

then the petroleum project have introduced new 

responsibilities and social and economic activities 

that have profoundly altered the traditional 

lifestyle and worldview of the lake communities. 

3.6 The Impact of Outside Influences 

It was only in 1935 that the expansive mountainous 

territory now known as Southern Highlands, 

where Lake Kutubu is located, was first explored 

by an Australian patrol team dispatched by the 

colonial government in Port Moresby. The first 

white man to view Lake Kutubu did so the following 

year during a reconnaissance flight across 

Foi territory. In 1937, a patrol post was established 

in a lake village to serve as the staging 

point for intensive exploration and consolidation 

of colonial administration in the Highlands. 

The uncanny and dramatic nature of the first contact 

was a harbinger of the change that Western 

technology and political control would bring to 

indigenous groups in the next few decades. To 

some extent the expansion of colonial dominion 

was limited by indigenous communities’ inalienable 

hold over the land and its resources. 

Although the Foi had the longest history of permanent 

contact with colonial administration of 

any group in Southern Highlands, they experienced 

no significant economic development.


Soon after contact, however, fundamentalist 

Christian mission stations were established in Foi 

territory and protected by the state. As the state 

usurped tribal autonomy, the missions became 

agents of pacification. They were a major force in 

undermining the traditional way of life, and ceremonial 

dances, rituals, art, clothing, and body decoration 

began to disappear. This snapped the 

threads of connection between culture and nature, 

and would have far-reaching consequences. As 

prohibitions against violating the dominion of 

masalai and ancestral spirits waned, the forestedge 

communities began to think of offers by commercial 

loggers as an easy road to development. 

Finally significant economic development arrived 

in the form of the Kutubu Oil Project, operated 

by Chevron Niugini. This project, which spent 

nearly $1.5 billion (in 1992 dollars) on exploration 

and project construction, was the single 

biggest resource sector investment in the history 

of PNG. The sparse population within the 

Petroleum Development License area comprised 

only about 134 Fasu and Foi clans, each of which 

averaged about 10 to 15 members in size. A road 

was built at enormous cost to service the project, 

and ended in the blink of an eye the long geographical 

isolation of the Foi and Fasu from the 

outside world. Project development and construction 

were carried out between December 

1990 and September 1992. 

The benefit streams that have flowed to the 

affected landowner communities since then are 

worth tens of million of dollars. By 1995, the 

total benefits from royalty, compensation, and 

land use payments, a Special Support Grant, tax 

credit schemes, and direct and indirect services 

from developers amounted to over K69.6 million. 3 

This does not include the K70 million in contracts 

negotiated with Landowner Companies and the 

projected equity payment of K62.85 million. The 

Kutubu Access Road and the Moro airstrip 

together cost about K91 million. 

The impact of these benefits, however, has not 

been equal. By 1995, beneficiaries numbered 

about 427 clans and 13,750 people living in 84 

villages in Southern Highlands and Gulf 

provinces. The Fasu, who numbered only about 

1,500 people and 58 clans, were the largest beneficiaries. 

The Foi consisted of 169 clans and 

7,000 people, but reaped a much smaller portion 

of income flows. The remaining 5,250 people, 

distributed in 200 clans, live in Gulf Province. 

The Foi and Fasu, who traditionally enjoyed very 

strong social and cultural ties and shared similar 

subsistence lifestyles, were quickly divided by 

the huge economic chasm created by the unequal 

benefit streams from the petroleum project. The 

Foi benefit pie is about one-tenth the size of the 

Fasu pie, and must be shared among nearly five 

times as many people. This inequality has 

imposed serious social strains on the Foi and 

ironically threatens to be a curse rather than a 

blessing for the Fasu. WWF does little or no 

work among the Fasu people since their “petroaffluence” 

has minimized the common ground 

needed to evolve a meaningful partnership. The 

Foi have watched their Fasu neighbors drown in 

wealth as a flood of consumption has led to 

social and cultural degradation. The Foi believe, 

with reason, that the Fasu cannot sustain their 

present course without irremediable damage. 

The Foi have also seen the impact on their own 

way of life. Stanley Wabi, for instance, is a community 

outreach worker in WWF’s local program. 

His first experience with money came in 

1980, when he was paid K6 for carrying the 

patrol box of a soldier. Wabi had no place to 

spend the money, nothing to spend it on. He 

depended entirely on game meat and garden 

food. Throughout the 1980s, unskilled labor 

could earn one about K10 a fortnight. But with 

the arrival of the oil project, opportunities for 

wage labor increased and pay rose to K200 or 

K300 per fortnight. The cash flowing from work 

with the oil project and its contractors and from 

royalty and compensation payments has created a 

miniconsumer economy. Reliance on subsistence 

foods is waning, and consumption of soft drinks, 

rice, sugar, and canned meat are on the rise. 

Subsistence production is increasingly thought of 

as hard, time-consuming work. Knowledge of 

plants and the natural world is in danger of being 

lost. Traditional authority and leadership is 

being challenged, and the young, drawn to 

Western ways, are becoming alienated from their 

own heritage. Today, Wabi is 34, and he and others 

of his generation see things slipping away. 

He and others say that their way of life can last 

forever but only as long as they look after their 

resources and use them wisely. Spared from the 

overwhelming temptation the Fasu face, the Foi


have seen the warning sign in their own communities, 

and this has paved the way for a stronger 

partnership with conservation organizations. 

IV. Partnership between WWF 

and the Lake People 

4.1 Establishing the Lake Kutubu Wildlife 

Management Area 

In 1988, Kone Yore, a community leader from 

Tubage village, proposed that a national park be 

established around Mt. Kemenagi, which rises 

above Lake Kutubu at the southeastern end. The 

community knew very little about what establishing 

such a park would mean, but it supported the 

idea of establishing an area in which resources 

would be preserved for future generations. Kone 

Yore visited the Department of Environment and 

Conservation (DEC), which had jurisdiction of 

protected areas in PNG, to discuss the matter. He 

was surprised to hear that the National Parks Act 

required that parkland be ceded to the state. The 

community was not interested in surrendering 

ownership, and the idea was temporarily dropped. 

In 1989 Chevron Niugini cleared an area near 

Gesege village to drill a test well. The community 

expressed dissatisfaction with the K1,000 

compensation paid by Chevron Niugini for the 

clearing the site. The lake communities were 

also increasingly concerned about the potential 

impact of planned infrastructure, including the 

access road from Pimaga to the oil fields and the 

Moro airstrip. One community member, Sabe 

Ko’osabe, wrote and later visited the DEC to discuss 

the establishment of some sort of protected 

area around Lake Kutubu that did not require surrender 

of land ownership. 

DEC suggested that a Wildlife Management Area 

(WMA) could be established under the Fauna 

(Protection and Control) Act 1978. A WMA does 

not require the surrender of land to the Crown, 

and does retain customary ownership. The act 

essentially enables local communities to establish 

rules for the management of fauna and flora habitat. 

These rules are administered by a Wildlife 

Management Area Committee (WMAC) 

appointed by the landowners. The government 

publicly registers a WMA once its boundary is 

demarcated, the rules agreed upon, and the 

WMAC members nominated. The rules then 

have the force of law. Unlike a national park, a 

WMA may be dissolved by landowners at any 

time, or its rules amended or altered. Landowners 

set the penalty for infringement of rules, and it is 

largely up to the WMAC to enforce them, since 

DEC has a very small rural presence. 

For a WMA to be established, all landowners 

must agree to the establishment and to the rules 

of enforcement. Leaders from Gesege village 

approached Chevron for assistance to engage a 

consultant to help garner support for setting up a 

management area and to prepare the paperwork 

for registering it. Meetings were held in all of 

the lake communities, and broad support 

emerged to establish the Lake Kutubu Wildlife 

Management Area. Each community defined the 

boundaries of the land that members wished to 

include, and made recommendations for the rules 

of enforcement. The key issues that the community 

wished to address were 

• control of land clearing; 

• appropriate compensation for land clearing 

by the Kutubu Oil Project and others; 

• the potential impacts of the Kutubu access 

road; 

• achievement of balanced development; and 

• improved management of traditional 

resources such as canoe trees, orchids, and 

black palm. 

In 1991, Chevron Niugini provided surveyors to 

allow the boundary to be legally defined. In 

April 1992, DEC was advised of the communities’ 

desire and readiness to establish Lake 

Kutubu WMA, the proposed rules of enforcement, 

the boundary description, and the members 

of the WMAC. The WMA was publicly registered 

on June 25, 1992, but for some reason the 

rules were not included in the official notice. 

4.2 WWF’s Involvement in Community 

Research 

In late 1993, prior to commencement of the 

Kikori ICDP, WWF received a request from the 

Lake Kutubu WMA to help prepare interim 

management guidelines for the area. This assistance 

was provided and, through extensive community 

consultations, a more comprehensive set 

of management procedures and rules was developed 

in 1994.


The Kikori ICDP commenced in 1994 and an 

environment coordinator was recruited in 1995. 

Lake Kutubu and its WMA became a focus of 

work because of the uniqueness of its fish, its 

high biodiversity values, and the intensive 

nearby development. Environmental awareness 

activities were conducted in all the villages 

around the lake in 1995. Discussions with 

communities and formal workshops in the villages 

of Gesege and Yo’obo revealed the deepening 

alarm among the Foi at what was perceived 

to be a decline in fish size and numbers. This 

concern was expressed most keenly by several 

key clan leaders from Gesege, Tugiri, Yo’obo, 

and Wasemi villages. The Lake Kutubu WMAC 

echoed the concern, although some members 

may have been more interested in pursuing compensation 

from Chevron than finding methods to 

conserve fish populations. 

Explanations for the decline of fish stocks were 

varied. Some people pointed a finger at the 

petroleum development—although there was no 

evidence to substantiate an impact apart from 

localized sedimentation from road runoff. Others 

discussed changes in fishing technology, and 

increased population around the lake. If there 

was no consensus about cause, the community 

meetings made clear that the level of alarm was 

acute and general. Fish were a prized food and 

the major source of protein, and they were getting 

harder to catch and smaller in size. Many 

people, especially older male clan leaders and 

women with babies, were concerned that their 

children and grandchildren would not be able to 

enjoy freshly caught fish from Lake Kutubu as 

they themselves had. 

When WWF held community meetings and 

workshops to discuss this issue more fully, it 

became clear that knowledge was scattered. 

Individuals had a general idea of where fishing 

was best and how much fish they typically 

caught, but no one could quantify the catches, 

frequency of fishing, or the fishing ranges of the 

entire community. Although the men recognized 

that women spent much time fishing, many 

insisted that they contributed more fish to the 

average household than their women did. The 

women, on the other hand, believed that they 

contributed far more fish to the household. The 

differences in perception that surfaced at the 

workshop at Gesege village finally made it obvious 

that fishing had to be observed more closely 

to see who was participating and where, what 

methods were being used, and with what results. 

The communities and WWF agreed to start a 

program for monitoring subsistence catches and 

profiling the characteristics of the fishery, so that 

strategies for sustainable harvesting could be 

developed. WWF was careful to dispel unrealistic 

expectations. It would be vital to establish a 

baseline against which any future decline in fish 

catch and fish size could be detected. 

4.3 Designing a Subsistence Fish Catch 

Monitoring Program 

The concept of a fish catch monitoring program 

was discussed in detail with members of the 

WMAC, and WWF held meetings in all the lake 

villages to build consensus and participation. 

Each community believed that it was important 

for villagers to do the monitoring if the findings 

were to be credible. 

The pattern of settlement around the lake made it 

impossible to monitor all canoe landing sites 

simultaneously. To maximize the efficiency of the 

effort, monitoring focused on the larger villages, 

which also tended to have fewer canoe landing 

sites. Villages were selected from all the major 

zones of the lake. Only two of the major villages 

on the lake were not sampled. Soro was omitted 

because of community disinterest—perhaps 

because many of the villagers were Fasu who had 

chosen to work locally for wages rather than 

spend their time fishing. Inu was omitted because 

it was likely to duplicate the results from another 

village that shares the same fishing habitats. Since 

both villages had a large number of landing sites, 

it seemed wiser to concentrate limited resources to 

make sure that all catches from one were recorded 

rather than partial results from both. Wasemi was 

selected because of the interest and enthusiasm of 

a number of key clan leaders. 

WWF trained and worked with monitoring teams 

of two to eight members from the five selected 

villages. Monitoring was conducted for a total of 

85 days. Monitoring began with a pilot study in 

September 1995 in Gesege, Yo’obo, and Tugiri to 

test and refine the methodology. Quarterly monitoring, 

with at least three days per quarter, then 

followed between January 1996 and February 

1997 in all the villages. Larger villages such as 

Wasemi had more monitoring days.


A pair of trained observers was stationed at each 

observation point or canoe landing site to ensure 

that all catches were recorded. The observers 

noted the times of departure and arrival of all 

canoes in the area. When a canoe returned, the 

observers asked permission to examine the catch 

and interview the men or women who had done 

the fishing. 

The following kinds of information were 

documented: 

• Catch composition was determined by noting 

the number and type of each fish or 

crayfish caught, and identifying it by its 

Foi name or English common name; 

• The total weight of the catch by species, 

including, where possible, individual 

weights and lengths; 

• The number of hours people spent fishing 

was determined by interviewing the leader of 

each fishing trip to see if other activities had 

occurred, such as bamboo collecting or gardening, 

and subtracting the time devoted to 

secondary activities from the canoe’s departure–return 

log on the monitoring sheet; 

• The gender and age distribution of people 

doing the fishing was loosely defined as 

men, boys, women, and girls (the age distinctions 

were somewhat subjective, but 

women and men were generally those who 

were married or of a marriageable age); the 

leader’s name was also recorded, to help 

keep track of gill net owners; 

• The destination of the catch was noted to 

determine whether it was for home consumption 

or sale; 

• The fishing gear and/or fishing method 

used were noted, including separate notations 

for fishing and crayfishing equipment, 

and the mesh size of gill nets; 

• The fishing site was recorded, using the Foi 

place names, to determine the intensity of 

fishing at each site; distances to the site 

were added later using CAMRIS, a geographic 

information systems tool. 

For a variety of reasons, as in cases of people 

camping out overnight at bush huts, not all 

catches could be monitored. Wherever possible, 

fishermen whose catch could not be viewed 

directly were interviewed either the same day or 

the day after to gather data. The observers also 

recorded weather conditions and any other factors 

that might influence the amount of time spent 

fishing on a particular day, noting holidays, market 

days, community work days, church days, and 

compensation claim days on the record sheets. 

The subsistence fish catch monitoring program 

produced a vast amount of data, and will provide 

ample baseline data against which to compare 

changes in the future. There were several 

key findings. 

First, the fishery was found to be far more significant 

to the community than first thought. The 

annual catch for the entire lake was estimated to 

be 70.1 tons/annum. This is equivalent to 

164,941.2 tins (425-g mackerel tins) of fish per 

year. The cheapest brand at the Moro trade store 

in 1997 was K2.20 per tin, so the replacement 

value of fish to the lake communities would be 

K362,870.59 per year. The resource is economically 

important to the lake people. 

Second, a total of 2,143 crayfish and 1,259 fish 

were caught per day by the five villages, and 

approximately 2,118,460 crayfish and 1,244,285 

fish were caught per year. This is an extremely 

large number and highlights the highly productive 

nature of the lake. 

Third, the mean catch weight/person/day for all 

five villages was 121.2 g/day. This is much 

higher than that reported for a number of other 

Pacific Islands such as the Solomons (63–78 

g/day), Tigak Island, PNG (24 g), West New 

Britain (11 g), and Western Samoa (27–69 g). 

Fourth, a total of 19 species of fish and crustaceans 

were recorded in the catch. When the data for all 

villages was pooled, three of the species contributed 

80 percent of the total catch weight: crayfish, or 

Cherax papuanus (35 percent); Adamson’s grunter, 

or Hephaestus adamsoni (23 percent); and fimbriate 

gudgeon, or Oxyeleotris fimbriata (22 percent). 

Fifth, fish were caught by a variety of methods, 

including more traditional methods such as poisoning 

with plant extracts such as Derris. 

However, pooled data for the five villages showed, 

in descending order, that hand lining (30 percent), 

mixed fishing using hand lines and catching crayfish 

by hand (24 percent), spearing (17 percent), 

and gill netting plus mixed gill netting (17 per-


cent) contributed most by weight. Gill netting 

gave the highest catch/unit effort (1085.6 g/hr), 

while hand lining gave the lowest (200.5 g/hr). 

Sixth, a large proportion of the people (111, or 

19 percent of the 5 villages) engaged daily in 

fishing activity, indicating its importance to the 

Foi. An estimated 370.3 person-hours/day were 

spent fishing in the five villages combined. 

Seventh, females undertook the majority of fishing 

(53–85 percent of the effort, depending on the village). 

The average one-way distance traveled to a 

fishing ground was 891 meters, but ranged from 

50 meters to 7,199 meters. 

Eighth, for each village, the monitoring program 

identified a number of areas that appeared to be 

heavily fished (>10 percent of total catch weight) 

and that would require management attention. 

Ninth, fish of all weights and lengths were captured; 

nothing seemed to be considered too 

small. Fish as light as 1 g and as short as 20 mm 

were included in the catch. 

Tenth, gill-net mesh size ranged from 1" to 3.5". 

Fish had to run the gauntlet of being caught in a 

gill net at all stages of their life because of the 

wide range of mesh sizes being used. 

4.4 Development of a Community-Based 

Management Strategy 

WWF produced a large written report analyzing 

the catch monitoring data and made recommendations 

for fishery management strategies. In many 

cases, WWF presented a number of options. 

There were three main recommendations. 

• Heavily fished areas should be closed for a 

period of time. Four options were discussed 

with communities— 

1) a two-to-three-year closure of heavily 

fished areas; 

2) closure of heavily fished areas every 

second year; 

3) closure of heavily fished areas during the 

wetter months (April–September); and 

4) a ban on use of gill nets in heavily 

fished areas during April–September. 

• Small-mesh (


village court magistrates have cooperated to 

enforce the restrictions because their purpose is 

widely understood and supported. In fact the 

response was so good that after the first year of 

closure, many new requests were made for sign 

boards to create new no-fishing zones and to 

extend the ban in existing areas about to reopen. 

Recently, seven villages closed nine additional 

zones, after clan leaders who had been participants 

and seen the results for themselves encouraged 

other leaders to join in. Fish stocks have 

increased in closed areas, and the word has spread. 

It is too early to tell whether communities are 

releasing fish smaller than 10 cm. However, 

WWF continues to reinforce the awareness programs. 

Lake communities are now requesting 

that WWF provide technical assistance to set up 

fish-stock monitoring in closed areas before and 

after bans are imposed to evaluate changes. 

WWF is planning to provide training so that 

landowners can conduct visual timed-swim-transect 

counts of fish stocks in the closed areas. 

Another spin-off of increased environmental 

awareness has been the growing interest in having 

Lake Kutubu listed as a RAMSAR wetland 

site in recognition of its biological wealth. The 

WMAC and local communities are working with 

Wetlands International to provide the documentation 

for listing. This is one of many signs of 

how the WMAC itself has been revitalized after a 

long period of inactivity following its creation. 

The WMAC has recently sent a funding proposal 

to the Southern Highlands provincial government 

to assist them in their work. 

The Tugiri and Yo’obo communities have also 

been inspired by WWF awareness activities to 

develop a small ecotourism business on the lake. 

The two communities have jointly constructed a 

rustic lodge, and WWF is now providing technical 

assistance for future development of the lodge 

and a tourist trade. It is interesting to note that 

four of the key individuals involved in the enterprise 

also played key roles in fish monitoring at 

the two villages. 

V. Analysis 

5.1 Making the Program Accountable to 

the Community 

Perhaps one of the key reasons for project success 

was that WWF did not approach the community 

with a rigidly predetermined goal. Rather it was 

expected that the project would evolve over time 

and that WWF and the lake communities would 

jointly develop the objectives. WWF’s general 

purpose was to build environmental and sustainable 

resource management awareness in the lake 

communities and to strengthen the WMA. The 

sustainable management of fishery resources in 

Lake Kutubu was a common agenda that developed 

through a process of community awareness 

and analysis, and an assessment of where the 

interests of concerned communities and WWF 

overlapped. The communities wanted to be able 

to use fishery resources now and in the future, 

and WWF wanted to conserve the lake’s unique 

biodiversity. These goals were compatible 

enough to develop an effective partnership to 

meet both aspirations. 

It is important to note that the resource involved 

was of major significance to the community, and 

its management did not conflict with the community’s 

desire for development. Unlike some 

resources, fish are exploited by all sectors of the 

community—from very young children to old men 

and women—so interest was high and general. 

WWF’s policies made it eager and willing to 

work with indigenous peoples, and the legal and 

extralegal climate of PNG made it difficult if not 

impossible to protect biodiversity without doing 

so. The question was one of finding suitable local 

partners among the indigenous stakeholders. 

WWF carefully analyzed the local institutions 

and leadership structure on the lake in its search 

for the most effective partner. Although the 

WMAC technically should have fit the bill, the 

traditional clan leadership had more clout 

because they held customary tenure and were 

respected in the communities. WWF thus 

focused its attention on clan leaders without 

ignoring other players. WMAC members and 

less traditional leaders such as village magistrates 

and local councilors were kept informed and 

involved, not least because they would have roles 

to play in enforcing the no-fishing zones. As it


evolved, the project created the conditions for 

symbiotic relationships to form. 

The dynamic worked this way: By closing an 

area, traditional clan leaders could proclaim and 

reinforce their customary tenure rights. The 

WMAC added a legal seal of approval by ratifying 

the closure, helping to protect traditional 

landowners from rival claims while gaining prestige 

within the community by association with its 

traditional leadership. The village magistrate and 

local councilors reinforced the management 

strategies by using their power to deal with violators, 

and simultaneously gained status in the lake 

villages by enforcing the community’s will. 

This last element was crucial. The process of 

identifying problems and needs and devising and 

implementing management strategies was a cooperative 

effort among the local communities. 

WWF played an important role in this. Although 

the communities had significant traditional knowledge 

about the lake’s biological resources— 

knowledge that was incorporated into management 

strategies—they lacked the skills to objectively 

assess the overall characteristics and use of the 

fishery resources. WWF provided training to local 

community members in order to acquire information 

on the total fishery, monitor fish catches, and 

help communities make informed management 

decisions. This facilitated more effective collaboration 

with and among clan leaders, WMAC members, 

and village court magistrates. 

Although WWF took the lead in analyzing fisheries 

data, it did not confront the community 

with rigid prescriptions for improved management. 

Assisted by the trained community members, 

WWF presented a series of options for the 

community to discuss, weigh, and modify so that 

final management strategies would have community 

support and fit the community’s means to 

implement them. Indeed all initiative to implement 

final management strategies was left in the 

hands of local clan leaders and WMAC members. 

WWF merely responded to requests for assistance 

when required. In effect, WWF made itself 

accountable to the community. 

5.2 A Balance Sheet of Community and 

Conservation Benefits 

The conservation benefits of fish catch monitoring 

are clear, even though compliance is not universal. 

There has been an improvement in the 

sustainable management of fishery resources that 

will promote the long-term survival of the lake’s 

unique fish species. As previously mentioned, 

clan leaders and landowners report a noticeable 

improvement in fish stocks in the areas that were 

closed for a year and then reopened. Areas 

closed between December 1996 and October 

1998 show a remarkable increase in both the size 

and number of fish. These results have piqued 

the interest of other clan leaders, and requests are 

up for signboards to close off more areas. 

The fisheries management project has also spurred 

interest in other ideas for environmental awareness 

and sustainable resource management by the Foi 

communities. The ecotourism lodge and preparation 

for RAMSAR listing of Lake Kutubu have 

already been cited. Now that it has gained the 

trust of local communities and proven that it is an 

effective partner, WWF hopes to remain on the 

cutting edge of this process and is helping to build 

local skills to keep the momentum going. 

As a result of their participation in the fisheries 

project, a number of respected community members 

have now become serious advocates of conservation 

and sustainable resource management. 

Many of the directors of the Landowner Company 

starting the Tubo Lodge for ecotourism were 

trained as fish catch monitors and community 

workshop facilitators. It is also important to note 

that the local communities themselves are now 

requesting WWF training for local landowners to 

more effectively quantify the success of their 

management strategies. Because these technical 

skills are being internalized, the community is in 

a better position not only to monitor the status of 

fisheries but to make informed management decisions 

in general and to make them stick. 

One sign of that is the revitalization of the 

WMAC. Not only is it taking on a more active 

role, but community pressure has built to replace 

members who have been ineffective. The fact 

that local clan leaders are now interested in joining 

the committee is an indication of its new 

importance. How effective the committee will 

become is yet to be determined. It remains to be 

seen if members can transcend their personal 

interests and collegially develop a genuine commitment 

to sustainable resource management.


Yet it would be unrealistic to expect an overnight 

transformation or one independent of change 

within the communities. WWF, for instance, has 

continuously involved women in awareness activities, 

discussion of fishery management strategies, 

and the monitoring program. Yet it was men who 

always made the final management strategy decisions 

even for activities that were mainly carried 

out by women. Ensuring that the women who do 

most of the work in exploiting a resource are 

given a voice in community decision making 

about how to conserve that resource is perhaps 

WWF’s greatest challenge in all its work in the 

Kikori ICDP. The recruitment of local women to 

be outreach workers in WWF’s Community 

Outreach Program may set a precedent for helping 

the Foi tap resources and a resourcefulness they 

did not know they had. 

Still, there is no magic formula for predetermining 

what will work. When the first community 

meetings with the Foi were held, several community 

concerns were identified as possible priorities. 

One from the village of Gesege seemed, at 

first glance, to parallel the fisheries project. 

WWF decided to help develop a strategy for sustainable 

management of useful wild plants that 

villagers believed were growing scarce. The first 

step was to recruit two local men and two women 

facilitators and train them in basic participatory 

research and analysis. Data collection would 

focus on helping the community compile a useful 

plant dictionary and determine whether or not 

particular species were growing harder to find. 

Ninety-six species of the most commonly used 

plants were listed by their Foi names in a preliminary 

dictionary that described their uses as food, 

building materials, tools, implements, cordage, 

baskets, other woven articles, medicine, and 

magic. Specimens were also collected for 

herbarium identification of Latin names that 

would be added to the final draft. Despite this 

promising start, data about plant status proved to 

be ambiguous. Some interview respondents 

thought that certain species were less common 

while others were sure that nothing had changed. 

And when WWF convened a meeting to discuss 

the results, there was little interest in pursuing the 

management of any of these plants any further. 

A number of suppositions can be made about why 

the community was less interested in developing 

sustainable management strategies for plants than 

for fish. First, fish are a far more important 

resource to the people of Gesege. Almost everyone 

in the community fishes, while many plants 

are used by only a few people. Second, there are 

more substitutes available for certain plant uses. 

Canoes and house posts, for example, are cut 

from a number of different species, none of which 

appear to have critically declined. As more people 

obtain cash income, there is a growing preference 

for permanent building materials such as 

corrugated iron roofing and planed timber. 

Although people can substitute tinned fish or meat 

for fresh fish, people generally express a preference 

for the latter. And finally, fishing is an enjoyable 

social activity, particularly for women who 

can often be seen with their canoes lined up next 

to each other so that talk is plentiful even when 

the fish are not. Collection of plant material is 

generally viewed as hard work, and not conducive 

to social exchange. For the moment at least this 

project idea is on hold. 

This brings us back to the beginning. However 

promising a project idea seems, it is best to begin 

at an appropriate scale. Usually that means establishing 

a dialogue through participatory research. 

If you listen closely and make it clear that nothing 

will happen unless the community helps make it 

happen, people will quickly help you figure out 

whether the idea has a future or not. 

VI. Conclusions 

The territory and lives of indigenous peoples 

almost everywhere in Papua New Guinea coincide 

with ecosystems of high significance. This is particularly 

true of the Kikori River watershed where 

the ICDP is being implemented. Conservation 

groups in other parts of the world might try to 

circumvent local people and form top-down 

alliances with the state in an effort to expedite 

environmental initiatives. Customary land tenure 

in PNG requires conservation groups to work with 

indigenous peoples if they wish to do any meaningful 

work at all. Consequently, lessons are 

being learned here that may apply elsewhere when 

hidden opportunities are being overlooked because 

the balance of power does not require looking 

deeper. Working with the people who are the 

primary stakeholders in a place may be slower, but 

it also may be the best chance for an effective and


long-lasting partnership to conserve the land and 

its resources. 

The challenge confronting WWF in PNG has been 

in forming an effective and meaningful partnership 

with indigenous communities. As this case study 

indicates, their goals and priorities often do not 

match those held by conservation groups. Partnership 

is not a given; it usually must be created. 

That involves a long process of dialogue and 

action to learn about one another, develop trust, 

and find where a mutuality of interests exists 

between conservation and development. 

In the case of the sustainable management of 

subsistence fisheries in Lake Kutubu, the goals of 

the Foi and WWF overlapped to provide firm 

ground on which a partnership could be built 

almost immediately. In successfully carrying out 

the project, the communities began to appropriate 

for themselves certain conservation goals. The 

linkage of conservation to resources crucial to 

the community was vital to this process. Now 

that the notion has taken root, the lake communities 

are beginning to apply it in other initiatives. 

WWF supplied needed skills, knowledge, and 

resources to facilitate the process. In turn, the 

communities taught WWF much about this particular 

corner of the world that the Foi and their 

ancestors have tended for thousands of years. 

Lessons that might be of use in building effective 

partnerships elsewhere include the following 

six points: 

• Do not approach indigenous communities 

with predetermined goals and a rigid conservation 

agenda. Local priorities must be 

the starting point for a transparent dialogue 

about means and ends. The knowledge, 

skills, and culture of the indigenous group 

must be expressed if any project is to take 

root and flower. On its side, a conservation 

organization must be frank about dispelling 

unrealistic expectations about what it can 

deliver. Both parties can then search for 

areas where their goals are complementary 

or overlap, and build on them for broader 

conservation initiatives. 

• Search for appropriate institutions with 

which to work. Do not limit this search to 

formally structured organizations such as the 

WMAC or village courts or local government 

officials. Traditional leadership structures 

are often more powerful and influential 

institutions and better reflect the voice of the 

community than formal organizations. 

• Improve community capacity through 

meetings, workshops, and training that 

build awareness, skills, and knowledge 

needed to make informed resource management 

decisions. Involving the Foi in 

the collection and analysis of the data they 

needed to assess fish populations made it 

possible for the community to believe that 

they owned the project and could claim 

credit for the results. This increased 

capacity, in turn, has built a foundation for 

refining results and taking on new challenges 

in other areas. 

• In engaging the community in dialogue, 

conservation organizations must make conscious 

efforts to recapture traditional 

knowledge and resource management skills 

and look for ways to supplement that 

knowledge with modern tools and techniques 

that the community can appropriate 

to achieve conservation goals. The values 

and practices of indigenous communities 

are the foundation for building lasting solutions. 

Without a strong sense of cultural 

identity, a community is unlikely to mobilize 

the broad support needed to form decisions 

and make them stick. Specific 

cultural forms may also be latent resources, 

waiting to be tapped in new ways. Beliefs 

among the Foi about forest spirits and 

ancestral obligations, for instance, may 

prove key to devising culture-based strategies 

for protecting the resource base for 

future generations. 

• In reaching out to the community, conservation 

organizations also need to be more 

resourceful and creative in involving 

women, who after all are often the primary 

actors in subsistence activities. 

• Finally, one must always be aware of the 

long-term, even when the step being taken 

is short-term and halting. This spotlights 

the importance of reaching out to the 

young as the fishery project did when it 

involved schoolchildren as well as their 

elders. It also means that youth should be


involved in the recovery of traditional 

knowledge and how it is connected to 

nature. The young are in danger of losing 

their link to their past, yet they may be in 

the best position to adapt their heritage to 

invent a habitable future. In this equation, 

the vitality of the culture and the vitality of 

the resource base may well rise or fall 

together. 

Endnotes 

1. I want to acknowledge the valuable comments 

and contribution made by Tanya Leary, the architect 

of the Fish Monitoring Program, and the Foi 

leaders of Tugiri, Wasame, K-Point, Yo’obo, and 

Gesege villages of Lake Kutubu. 

2. Scientists originally identified only 10 

endemic species. The monitoring project discovered 

that the Foi had names for two additional 

species that scientists had been lumping together 

with fish that looked similar. Double-checking 

proved the Foi to be correct. 

3. K= kina, Papua New Guinea’s currency. In 

1995, one kina = U.S. 90 cents.


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Draft report.

CHAPTER 7 

Environmental Governance: Lessons 

From the Ju/’hoan Bushmen in 

Northeastern Namibia 

Barbara Wyckoff-Baird 1 


Smoke hangs in the still air, pierced by sunlight 

slanting through the doorway of the training center’s 

conference room. On one side sit leaders 

and community rangers from the Nyae Nyae 

Farmers Cooperative (NNFC), representing about 

3,000 Ju/’hoan Bushmen living in northeastern 

Namibia. On the other side are staff of the 

Namibian Ministry of Environment and Tourism 

(MET). It is something of an accomplishment 

just to have both parties sitting quietly together 

in the same place. It is even more unusual that 

they are listening intently to the same thing. 

Everyone has come to hear a wildlife biologist 

and a range management expert from Botswana 

who were hired by the NNFC to help draft a 

game management plan. The wildlife biologist is 

quite blunt. He says the Ju/’hoan are not using 

their wildlife sustainably. He suggests that the 

community curtail its hunting. 

As the translator conveys this message, it sparks 

sharp comments in Ju/’hoansi, the local language. 

NNFC representatives direct these comments 

not at the biologist, but toward one 

another. Most of these men are old; many are 

expert hunters who have tracked on foot and used 

bows and arrows to bring down buffalo, giraffe, 

eland, kudu, and other animals. The Ju/’hoan 

people, who are also known as the !Kung and the 

Ju/Wasi, are no longer, strictly speaking, huntergatherers. 

They pursue a mixed economy, combining 

foraging and subsistence hunting with 

livestock production, small-scale dryland agriculture, 

craftwork, and wage labor. In the Nyae 

Nyae area they still exploit a wide variety of 

resources, including more than 120 species of 

edible plants and dozens of large and small mam-

114 The Ju/’hoan in Namibia 

mal species (Hitchcock 1992). Game populations 

have been used sustainably for centuries 

without conscious coordination of overall kills, 

so the management plan being put on the table 

by the wildlife biologist is an abstract concept 

with several difficult-to-grasp components. 

The debate blazes for some time until finally a 

consensus emerges from the smoke. /Ui, one of 

the best hunters, expresses it this way: “The news 

is bad and good. Now we know how many animals 

it is safe to take. It may not be as many as 

we would want or as a hunt will bring, but we can 

be sure that some will be left for our children.” 

Even as this conclusion is being reached, minds 

are also being changed among the MET staff 

who watch silently on the other side of the table. 

For years tension has existed between the MET 

and the local community, and some government 

agents charged with protecting wildlife have 

thought of the Ju/’hoan as greedy children or 

even as predatory poachers. What they hear now 

begins to persuade them that these people (and 

Ju/’hoan can be translated as “the Real People”) 

do not want to kill all their animals. Rather 

they share with MET a vision of a future that 

includes both people and wildlife. While no one 

thinks that all differences have vanished, it 

seems clear that the time has come to build a 

partnership. The community and the government 

need to act in tandem to preserve the natural 

resource base if local people and their 

cultural identity are to survive. 

The outline for a wildlife management plan is 

agreed to. It has been developed through a participatory 

process that captures the Ju/’hoan’s 

knowledge of their resources. It calls for wildlife 

monitoring; construction of game water points; 

live sale of buffalo, roan, and eland; development 

of tourism; reduced hunting by community members; 

and control of poaching by “outsiders.” 

The NNFC will plan and implement some of the 

elements alone, but the harvest quotas will have 

to be negotiated with MET staff. The people of 

Nyae Nyae and the MET will also need to work 

together to stop poaching. 

As the meeting winds down, staff from the MET 

and NNFC make plans for airing the various 

options with the community members who are 

not present. The community will have to weigh 

the benefits and costs of each choice and make 

some tradeoffs if the plan is to be enforceable. 

The Ju/’hoan will have to establish rules and 

sanctions governing resource use and develop 

mechanisms for monitoring compliance. The 

NNFC’s board, and the community rangers who 

will be on the front line of implementing the 

plan, are prepared to discuss these issues, and 

have the authority and confidence to do so. 

That meeting took place in 1997, when a new 

government policy to establish game conservancies 

managed by local communities was taking 

shape. There were doubters on both sides about 

what this policy really meant and whether it 

could work. This case study describes how the 

Ju/’hoan community and the government found 

common ground, and how an outside broker—the 

Living in a Finite Environment (LIFE) Program, 

established by the government, comanaged by 

World Wildlife Fund–US, and funded by 

USAID—facilitated the process. What is special 

about this story is not the idea, which has been 

tried elsewhere in Africa with mixed results, but 

the effectiveness of the community response. 

This study will detail what that involved and 

what steps an outside organization like WWF can 

take to support community-based efforts. 

As will become clear, such support is crucial. 

The Ju/’hoan experience shows that when governments 

devolve resource management rights, benefits, 

and responsibilities to local levels, the 

indigenous community must build new partnerships 

with the public and private sectors and often 

with international donors to make the devolution 

work. The community must be able to clearly 

state its agenda and find mutually shared objectives 

with other actors. Developing the confidence, 

information, and skills necessary to be a 

partner in joint decision making is an institutional 

challenge, particularly for most hunter-gatherer 

societies that rely on consensus rather than formally 

established hierarchies of authority. Old 

institutions will find their effectiveness tested, and 

newly created institutions will find their legitimacy 

questioned. The indigenous community 

must ensure that its institutions function both 

locally and within these new alliances by adapting 

rather than scrapping existing social organizations 

and cultural values. At the same time, the government 

agencies involved are also likely to be 

breaking new ground and in need of advice and

The Ju/’hoan in Namibia 115 

support. The LIFE Program played a key role in 

capacity building by helping open lines of communication 

within the community and between 

the community and the government. 

As the case study unfolds, lessons will emerge 

that others can apply to similar projects elsewhere. 

This does not mean that what happened 

in Nyae Nyae can be replicated literally, as if it 

were a master blueprint for game management by 

indigenous peoples. Historical and cultural contexts, 

environmental conditions, national policies 

and legal systems, the mix of actors, and available 

resources vary too widely for that. 

Above all, indigenous communities are not all 

alike. Nyae Nyae provides an environment in 

which the conservancy idea may flourish. First, 

the Ju/’hoan Bushmen are effective managers of 

their natural resources. They know those 

resources intimately, understand the past and 

present ecological contexts in which the resources 

exist, and have developed social systems to manage 

them. At current population levels the 

Ju/’hoan lifestyle is consistent with an increase of 

wildlife in the area. The success of hunting as a 

livelihood, in fact, depends on increased game 

supply. Unlike more sedentary agriculturists, the 

Ju/’hoan see wildlife not as a threat but as a necessary 

element in their environment. 

The Ju/’hoan community is also relatively small 

and homogenous. Conflicts exist, primarily 

between age groups and between members of 

different n!oresi (the places to which people 

belong), as well as with individuals seeking personal 

gain; yet common goals, beliefs, and values 

prevail. The community has maintained its cultural 

identity despite the rapid changes brought 

on by engaging in the political and economic life 

of the nation state. 

To better understand what is happening in Nyae 

Nyae, this case study will proceed in three 

stages. First, the environmental, cultural, and 

legal context for game management will be 

examined. This will be followed by a discussion 

of how the idea evolved and took hold within the 

community and the problems and opportunities 

that have followed. Then lessons that have 

broader application will be highlighted. These 

lessons fall into three broad categories: the 

necessity for an enabling policy environment and 

the limitations of this particular system; steps to 

take in strengthening local institutions; and ingredients 

for effective partnerships, and the roles of 

external facilitators. 


2.1 Land and Ecology 

The Ju/’hoan once lived on a vast tract of land 

that encompassed parts of Namibia and 

Botswana, mainly in what is now known as the 

Kalahari Desert (see map 7.1). The “Real 

People” were able to collect food and hunt game 

over wide-ranging areas (Marshall 1976). 

Construction of a fence along the border between 

Botswana and Namibia blocked migration routes 

for game and divided the Ju/’hoan, who lost territory. 

The Nyae Nyae area is now about 9,000 

square kilometers (3,240 square miles) of mostly 

semiarid tree-shrub savanna. Rainfall averages 

300–500 millimeters per year but varies greatly 

in both time and space. The mixture of clay pans 

and nonporous calcrete creates a system of seasonal 

pans and wetlands unique in the Kalahari 

area. In years of good rainfall, the pans and the 

large areas of calcrete fill with water in summer 

and attract large numbers of water and wading 

birds, including flamingos and pelicans. 

Endangered wattled cranes, snipe, the rare slaty 

egret, and many migrants from Europe are found 

when the pans are full (Jones 1996a). 

Vegetation is characterized by mixed broadleaf 

and acacia woodland where the dominant species 

include several types of combretum and the 

weeping wattle (Peltophorum africanum). Other 

species are baobab (Adansonia digitata), tamboti 

(Spirostachys africana), marula (Sclerocarya caffra), 

and mangetti (Ricinodendron rautanenii). 

The area is home to a number of rare or endangered 

animals. There is still a sizeable population 

of most antelope species, as well as elephants. 

All six of the continent’s predators and scavengers 

live in Nyae Nyae, which stands out as 

one of the last two refuges in Namibia for the 

wild dog, one of Africa’s most endangered mammals. 

There is a remnant herd of buffalo that was 

cut off from its migration route to the Okavango 

Delta by the Botswana border fence. Government 

officials have caught and quarantined this herd 

because of veterinary regulations. While the vegetation 

in Nyae Nyae is ecologically balanced, 

game resources are depleted and unbalanced.


Map 7.1 

The Ju/’hoansi’s Ancestral Territory (shaded area) 

Zambe zi River 

ANGOLA 

ZAMBIA 

CAPRIVI STRIP 

Chum/kwe 

Tsumeb 

Grootfontein 

NAMIBIA 

Dobe 

/Xai/xai 

/Du/da 

ZIMBABWE 

Francistown 

Gobabis 

BOTSWANA 

Limpopo River 

Gaborone 

SOUTH AFRICA 

Source: Biesele 1990 

Populations of buffalo, roan antelope, lion, 

giraffe, and other species are low, while those of 

elephant, hyena, and leopard are high. 

The nearby Khaudum Game Reserve, a wilderness 

area of 3,841 square kilometers (1,380 

square miles), is a central element of the ecosystem. 

With no fence between the park and surrounding 

land, animals—including lion and 

elephant—leave the reserve in the winter in 

search of food and water. Now that the Ju/’hoan 

keep livestock, they are no longer tolerant of 

lions; and elephants, too, have become enemies, 

destroying crops and water points. Veterinary 

fences in the south and west, and the border 

fence with Botswana in the east, have significantly 

reduced the area over which wildlife can 

roam. Animals such as elands and giraffes have 

died after finding their migration routes barred. 

2.2 People and Culture 

In 1970 the colonial government of South Africa 

divided Namibia into several regions, reserving 

the more productive areas for whites and designating 

less productive areas as homelands for 

black Africans. The Ju/’hoan lost 40,000 square 

kilometers of ancestral territory to other ethnic 

groups, and the government designated another 

portion to the aforementioned Khaudum Game 

Reserve. The remaining land became 

Bushmanland, an ethnic homeland for the 

Ju/’hoan, and the “Real People” were left with 

only 14 percent of the territory they held prior to 

1950, and only one permanent water hole. 

As part of this process, many Ju/’hoan moved to 

the small administrative center of Tsumkwe, 

which had a school, a clinic, a few jobs, a jail, 

and a liquor store. The Ju/’hoan social system 

nearly collapsed. Many families became 

dependent on a few people working for the 

administration or the South African army. 

Alcoholism, disease, malnutrition, prostitution, 

and a high rate of infant mortality became widespread. 

By the late 1970s, Tsumkwe was a rural 

slum. The Ju/’hoan referred to it as “the place 

of death” (Biesele 1990). 

The South African Bantu administration and then 

the Department of Governmental Affairs governed 

the Nyae Nyae area until independence in 

1990, when the homelands formally ceased to 

exist. In fact, however, these areas are still


inhabited predominately by tribal peoples like the 

Ju/’hoan who practice “communal” rather than 

private ownership. The Nyae Nyae area extends 

through what is currently known as the Tsumkwe 

District of the eastern Otjozondjupa Region. 

Throughout the changing administrative structures 

of the past two decades, an authority of 

central government responsible for wildlife management 

has been based in Tsumkwe, and MET 

maintains a significant presence and some decision-making 

authority there today. 

Traditionally the Ju/’hoan are organized as bands 

of individuals centered on and supported by the 

resources of a n!ore (singular form of n!oresi). 

During the 1980s some Ju/’hoan began a “back 

to the land” movement, leaving Tsumkwe to 

return to their n!oresi to reestablish occupancy 

rights. Today there are about 32 decentralized 

communities in Nyae Nyae, each with a water 

source (usually a well with a windmill), corrals 

for protecting small herds of cattle, and small 

agricultural fields/gardens. The communities 

range in size from a dozen to 150 people. 

An extended family group is headed by a n!ore 

kxao (plural—kxaosi), or “steward of shared 

resources” that include water, small game, and 

wild foods. Group members select the n!ore 

kxao, either a man or a woman, from among 

their elders. The Ju/’hoan see some resources as 

“common” beyond family, in which case two or 

more n!oresi kxaosi jointly undertake decision 

making (see figure 7.1). All game and natural 

water points are deemed common property, as are 

some wild foods, including mangetti nuts, marula 

nuts, and morama beans (=Oma and /Aice 1996). 

N!ore kxaosi have been known to jointly agree to 

a moratorium on certain species within their 

hunting grounds to avoid depletion. 

The Ju/’hoan culture of equality and tolerance 

has always favored decision making by consensus 

rather than by individual leaders. When such 

leaders do arise, their authority stems from how 

well they uphold the values of the society. 

Leadership is based on experience and wisdom, 

and leaders are generally older community members. 

Historically, men and women have had 

equal stature since gathering tasks were as critical 

as hunting was to group survival. As the 

Ju/’hoan became more integrated into the larger 

economy with the introduction of cattle and agricultural 

crops, women have lost some prestige 

and their social position has changed. 

The traditional egalitarianism and tolerance 

inherent in Ju/’hoan values tends to prevent a 

concentration of power. As in many other 

hunter-gatherer societies, there is a lack of hierarchical 

structure for decision making. Even the 

idea of representation—one person speaking for 

another—is unfamiliar, though less so among 

younger, more educated members of the community. 

As one person stated, “Each of us is a headman 

over himself” (Lee 1993). This makes it 

difficult for the Ju/’hoan to exercise their rights 

within the governmental framework of the country. 

The Traditional Authorities Act of 1996 provides 

for one “traditional leader” and one to three 

councilors, based on population, to represent a 

community at the central government level. The 

Ju/’hoan have no single individual to represent 

them in this way. 

A key feature of the past 15 years has been the 

slow emergence of legitimate and effective 

organizational structures among the Ju/’hoan to 

deal with the outside world (see figure 7.2). 

The Ju/Wa Farmers Union was started in 1986 

as the back-to-the-land movement gathered 

steam. By late 1988, with the number of 

n!oresi increasing rapidly and with a growing 

need to facilitate applications for legal recognition 

in the soon-to-be-independent Namibia, 

awareness grew that the organization needed to 

formalize and institutionalize its structure and 

leadership. The union drafted a set of statutes 

to establish a representative organization governed 

by a council. Each n!ore would choose a 

male and a female representative to sit on the 

Representative Council, which would select 

individuals to communicate with outsiders and 

would meet at least every six months to provide 

feedback to and from the community. 

The Ju/Wa Farmers Union further tightened its 

structure and became the NNFC in 1990 when a 

development program took shape with funding 

from international donors and support from a 

Namibian nongovernmental organization (NGO). 

Members of the NNFC Representative Council 

elected a chairperson, a secretary, and one representative 

from each of the three districts of Nyae 

Nyae to form a management committee and 

supervise day-to-day program services. Megan


Figure 7.1 

Common Property Resources in Nyae Nyae 

N!ore 

N!ore 

N!ore 

N!ore 

N!ore 

N!ore 

Wildlife: may be 

resident or migratory 

Hunting Area: always shared 

between more than one N!ore 

Wildlife movements 

Veld Food Gathering 

Area: Including tubers, 

roots, berries, etc. 

Indigenous Fruit Tree 

Area: may be an 

individual tree or grove 

A N!ore is roughly equal to a village or farm. 

Rights to live in or use the resources of a N!ore are inherited at birth or 

gained through marriage. 

N!oresi resources are managed by a N!ore Kxao or “owner” who 

makes desisions in consultation with the other residents of his or her N!ore. 

Resource areas can be “owned” by one N!ore or they may be shared between several. 

Rights to use the resources owned by another N!ore may be shared, but only when 

permission is given by the N!ore Kxao. Hunting or gathering without permission is 

considered “stealing,” and was traditionally punishable by death. 

Adapted from =Oma and /Aice 1996 

Biesele (1994), an anthropologist and longtime 

colleague of the NNFC, describes this period as 

“the application of an international stereotype of 

leadership and community management in…a 

long and subtle process.” The new structures 

were essentially imported models created to meet 

expectations that did not originate locally. 

Wyckoff-Baird (1996) adds, “The early approach 

focused on the products of democratization (i.e., 

creating representative institutions) rather than on 

the process of democratization (i.e., indigenous 

people defining and achieving their own appropriate 

models).” The project to establish and run 

a conservancy with the assistance of the LIFE 

Program eventually helped to narrow this gap. 

2.3 Conservancy and Tenure 

The indigenous people of Nyae Nyae have fought 

long for recognition of their traditional tenure 

system. Several factors have complicated the battle 

since national independence. Until recently 

there was no national legislation detailing communal 

land and resource rights. The Namibian 

Constitution recognizes some land rights by infer-


Figure 7.2 

Evolution of Decision-making Structures in Nyae Nyae 

Ju/Wa Farmer’s Union 

1986–1990 

Nyae Nyae Farmer’s 

Cooperative 1990–1995 

Nyae Nyae Farmer’s 

Cooperative 1995– 

Union 

NNFC Management 

Committee 

Management Board 

Management 

Committee 

Community 

Representative Council 

District Meetings 

Community Rangers 

Community 

N!oresi 

Village Meetings 

Annual 

General 

Meeting 

A facilitative organization. 

Individuals chosen as communication 

links between 

community (decision makers) 

and outsiders. All sectors of 

population participate to reach 

a high level of consensus. 

Effective with low population. 

External model of representation 

imposed in 1990. By early 1995, 

Management Committee becomes 

isolated, speaks on 

behalf of community, makes 

decisions for them, and rarely 

reports back. 

District representatives form a Management 

Board decision-making body. Management 

Committee makes only day-to-day implementation 

decisions. While population and 

other factors preclude return to facilitative 

structure, communication and consensus 

building is facilitated by work of community 

rangers and by village and district level 

meetings. 

Decision Making Information Flow 

Adapted from Wyckoff-Baird 1996 

ence, stating that “any Namibian has the right to 

move anywhere in Namibia, but must gain permission 

from the traditional authority in the area.” 

Given the lack of easily identifiable hierarchical 

decision-making structures among the Ju/’hoan, it 

is difficult to implement even this provision and 

most outsiders ignore it. The lack of effective 

political representation hampers the Ju/’hoan’s 

ability to win redress from the state. 

Sometimes the challenge to tenure is considerable. 

Since independence, more than 5,000 

Hereros, descendants of those who fled German 

colonial authority in the early 1900s, have been 

repatriated, with 40,000 head of cattle, from 

Botswana to Namibia just south of Nyae Nyae. 

The grasslands there are inferior, especially compared 

to those of the Ju/’hoan, who have much 

smaller herds. Ignoring the fence separating the 

two areas, the Herero began moving their cattle 

north in 1995. The resulting damage to wildlife 

was significant (Stuart-Hill and Perkins 1997), 

and the Ju/’hoan at first seemed powerless to protect 

their livelihoods. 

It is not surprising, then, that the Ju/’hoan were 

willing to listen to MET staff who came to Nyae 

Nyae at about that time touting a new policy that 

promised local people rights to wildlife. In 

Namibia the state owns all protected and endangered 

wildlife, but a private landowner owns the 

huntable game and can petition MET for a harvest 

quota for protected and endangered species 

living on the property. This quota is generally 

the number of animals that can be removed without 

negatively affecting species sustainability. In 

1995 the government enacted a policy for 

Wildlife Management, Utilization, and Tourism 

in Communal Areas to promote communitybased 

natural resource management, which was 

codified the following year in the 1996 

Amendment to the Nature Conservation Act. 

This act extends some private landowner rights to 

communal landowners by setting up procedures 

to establish conservancies. When government 

certifies that conditions have been met, a conservancy 

is established that gives the community 

conditional and limited rights to wildlife on communal 

land. The use of harvest quotas lets the


local resource manager see clear linkages 

between costs and benefits: As farmers manage 

resources more intensively to increase population 

numbers, they receive the benefit of higher quotas. 

These quotas generally translate into financial 

returns through live sale, tourism, and trophy 

hunting. It is assumed that these benefits will be 

incentives to use natural resources sustainably, 

thereby helping to improve conservation of biodiversity 

and habitats outside of protected areas 

like the Khaudum Game Reserve. 

Although Namibia now has strong legislation for 

community wildlife management, it does not 

directly address the greatest threat to the 

Ju/’hoan, the lack of secure tenure over their land 

and other resources. In the case of the challenge 

posed by the Herero cattle herds, the partnership 

between the NNFC and MET to establish a conservancy 

may have influenced the government’s 

decision in June 1997 to order the Herero to 

leave Nyae Nyae. However the growing pressure 

being brought to bear by Bushmen both inside 

and outside the country for tenure rights may 

also have played a role. 2 At any rate, by the end 

of 1997 all but one Herero family had complied. 

III. The Evolution of Communitybased 

Natural Resource 

Management in Nyae Nyae 

The story of how a partnership formed to bring 

effective community-based natural resource management 

to Nyae Nyae is complicated. It extends 

over nearly a decade and involves an extensive 

cast of actors (see figure 7.3). The story proceeds 

in three phases: impasse and the search for new 

approaches; revamping community institutions to 

take ownership of the project; and negotiating with 

outsiders to create a conservancy. Because there 

are so many diverse threads to this story, these 

phases contain areas of overlap. Like snapshots 

taken at three intervals, they show the growth and 

capacity of community organization among the 

Ju/’hoan as they struggle to become effective 

stakeholders in managing the land they live on. 

3.1 Institutional Gridlock and a New LIFE 

(1990–1995) 

To a great extent, what is happening in Namibia 

today would not have been possible without fundamental 

policy changes at the national level. 

MET did not begin with a blank slate. It inherited 

field staff, policies, and a history of conflict 

with communities from its colonial predecessor, 

the Department of Nature Conservation (DNC). 

Charged with managing wildlife throughout the 

country, the DNC concentrated on a system of 

parks and game reserves and limited its rural outreach 

activities to law enforcement, the control of 

problem animals (predators killing livestock and 

elephants destroying crops), and ad hoc environmental 

awareness-building. In Nyae Nyae, most 

of the effort went into building up the infrastructure 

of the Khaudum Game Reserve and restricting 

its use by local people. Water points were 

constructed to encourage game to enter the 

reserve, and DNC staff patrolled to control 

poaching by local people. They had the authority 

to enter people’s homes to apprehend suspects 

and to build campsites on community land for 

use by government staff. Many such activities 

were carried out without consulting local residents 

or n!ore leaders. 

Following independence, the DNC was replaced 

by MET. The pace of change since 1990 has 

been rapid, as the new ministry has increasingly 

focused on the development of ideas and practices 

that link conservation with development to 

improve the quality of life for all Namibians. In 

1991, MET began reaching out to local NGOs to 

conduct socio-ecological surveys of local views 

about resource management to identify problems 

and solutions. The survey in Nyae Nyae was the 

beginning of a different kind of relationship 

between the agency and the community. While it 

did not result in joint planning and implementation 

of wildlife management, it legitimized faceto-face 

contacts and began a dialogue that might 

one day make those outcomes possible. 

At the time, of course, one could not tell what 

direction was being followed. Certainly MET 

delivered confusing and contradictory messages 

to the people of Nyae Nyae. Those messages 

reflected deep conflicts within the ministry 

between those who thought nature had to be protected 

from local people and those who wanted 

to find a new way. One day representatives from 

MET would arrive bringing promises of local 

control over and benefit from the community’s 

wildlife, while the next day another set of staff 

would install pumps at water points for game


near villages without consulting anyone. Feeling 

pressure from NGOs and donors to work with 

local communities, senior MET officials in 

Windhoek, the national capital, made promises to 

local residents, but seemingly without telling 

field staff. Despite assurances that the practice 

of raiding people’s homes would stop, for 

instance, arrests continued, and MET began to 

seem no different than the DNC. 

Trust was further undermined by the reluctance 

of local MET agents to expedite poaching cases 

reported by the Ju/’hoan. Even though the community 

was aware of exceptional individuals, the 

agency quickly earned a reputation for being dishonest 

and incompetent. Partnership did not 

seem to be on anyone’s mind. 

After this halting start, which was not confined to 

Nyae Nyae, MET recognized that both the government 

and local NGOs lacked the financial 

resources, skills, and staff to work effectively 

with local communities. So in 1993 the ministry 

established the Living in a Finite Environment 

Figure 7.3 Wildlife Management in Nyae Nyae: Institutional Map, 1997 

NATIONAL POLICY 

1996 Amendment to Nature 

Conservation Act of 1975. 

GOVERNMENT 

PRIVATE SECTOR 

Management 

Benefits 

MET 

Agency responsible for 

safeguarding national 

interest in wildlife. In 

1997 delegated these 

rights to NNFC through 

the conservancy. 

NNFC 

Local community as 

stewards of the resources. 

Conservancy status approved in 

1997. Gained rights to manage 

and benefit from wildlife in 

the conservancy. 

TOURISM 

Private sector operators 

negotiated directly with 

the government. In 1997, 

have to now negotiate with 

NNFC who hold the rights 

to consumptive use of 

wildlife in the conservancy. 

Technical Assistance 

NNDFN 

A Namibia-based NGO 

providing administrative and 

institutional assistance to 

the NNFC. 

LOCAL 

GOVERNMENT 

Only recently gaining 

importance. Balances 

local level interests 

between ethnic groups, 

land use options, etc. 

Needs more support. 

Facilitation 

Facilitation 

LIFE Program 

Co-managed by WWF-US. 

Supports technical and 

organizational capacity building of 

Namibian NGOS and CBOs. 

NGOS 

Diagram by B. Wyckoff-Baird,1997


(LIFE) Program. This program, comanaged by 

WWF–US, would provide grants, training, and 

administrative and technical assistance to local 

NGOs and community-based organizations 

(CBOs). Its goals were to develop or strengthen 

representational decision-making bodies; expand 

skills in resource management and planning, as 

well as project development, implementation, and 

monitoring; increase economic benefits from 

resource use by promoting community-based 

tourism and other enterprises; and increase access 

to knowledge and information on which to base 

decisions. The LIFE Program would also act as a 

“buffer” between the local organizations and 

USAID, the primary donor, by absorbing some 

administrative, reporting, and financial management 

requirements. Both MET and WWF–US 

also pledged financial resources to the program. 

In January 1994 LIFE made its first grant in the 

Nyae Nyae area to the Nyae Nyae Development 

Foundation of Namibia (NNDFN), an NGO that 

was formed in the 1980s to aid Ju/’hoan efforts at 

self-reliance and to support the back-to-the-land 

movement. From early efforts to dig wells and 

supply them with pumps to build cattle herding 

in the n!oresi, the NNDFN expanded its support 

until by 1994 it included an integrated development 

program of education, preventive health 

care, agriculture, income generation, and natural 

resource management. 

The LIFE grant was provisional for six months, 

while an effort was undertaken to see what the 

community wanted to do. In July the Nyae Nyae 

Farmers Cooperative (NNFC) council met and 

asked the NGO to scale back its staff support and 

delegate more authority to the community. A new 

institution—community rangers—was established, 

and 10 young men were selected at district 

meetings to monitor game movements and keep 

people informed about what was happening in the 

development program. In August, the LIFE advisor 

and representatives of MET and the NNDFN 

came to Nyae Nyae to assess the situation. 

The LIFE Program decided to work directly with 

the NNFC. Realizing that community-based 

organizations face the dual task of identifying 

their priorities and developing the capacity to 

meet them, the LIFE Program is designed to provide 

CBOs with more proactive technical assistance 

than a professionally staffed development 

NGO would receive. In this case, several things 

were immediately apparent from discussions with 

community members. The NNFC, despite the 

lofty aims of its creators, was alienated from the 

people it was supposed to represent. 3 The 

Representative Council did not communicate 

effectively with its constituents and made only 

superficial decisions. Several community members 

would buttress this opinion in coming 

months by saying that their nominal representative 

to the council was not in fact chosen. 

Several n!oresi kxaosi reported that someone different 

attended almost every meeting. As one 

council member explained the selection process, 

“Whoever is in the n!ore when the truck arrives, 

jumps on and goes to the meeting.” 

The gap between the community and the 

Management Committee, the small group of five 

men selected by the council to run things day to 

day, was even wider. The committee made decisions 

on behalf of local residents but rarely communicated 

the results. It rarely consulted the 

community about how planning and implementation 

of the development program could be 

improved. Visits by committee members to the 

n!oresi had practically ceased. Most community 

members were unaware of what the committee 

was doing, and felt that the people on it should 

be replaced. 

Ironically the new “representational” system had 

increased stratification within the community. 

Many NNFC leaders were young men who had 

received an education. They felt comfortable 

around outsiders and were confident in expressing 

themselves as individuals. Lacking the 

attributes required by the new structure, older 

community members became marginalized. 

Women also lost much of their right to participate 

in decision making since they generally did 

not attend school, did not have needed language 

skills, and knew little about other cultures 

because they were shielded from extensive interactions 

with outsiders. 

While it was clear that the current structure was 

ineffective, it was unclear what should develop in 

its place. The Ju/’hoan wanted to engage in the 

national political process and eventually with the 

wider global society. They needed an organization 

that government would consider legitimate 

and representative in the new Namibian democ-


racy. At the same time, the LIFE advisor knew 

that experience in many community development 

efforts had shown that building on existing structures 

is more effective than creating new ones 

(Brown and Wyckoff-Baird 1992). The Ju/’hoan 

could not afford to forfeit their indigenous values 

and culture, and they did not wish to do so. The 

challenge was to find out how the indigenous 

social organization could accommodate itself to a 

new political process that required streamlined 

decision making to be effective. 

The LIFE technical advisor for community-based 

natural resource management (CBNRM) helped 

the community draft an action proposal, and the 

NNFC received its first direct grant from LIFE in 

September 1994. During the next 21 months, the 

technical advisor visited Nyae Nyae almost one 

week per month, working closely with other staff 

the NNFC hired. It was agreed that the NNFC 

and the advisor would jointly set objectives for 

each visit. A primary goal would be to facilitate 

independent assessments of activities and provide 

feedback to the community. A process would be 

designed to help the community identify its own 

needs and priorities, and begin to develop its own 

solutions. A wildlife management committee 

(the NNWMC) was also established that brought 

together NNFC leaders and community rangers 

with MET staff to build trust, reduce suspicions, 

and discuss how community-based natural 

resource management might be undertaken. 

How that proposal fared will be the subject of the 

next two sections. But to understand what eventually 

happened, it is first necessary to take a step 

back and see how LIFE was interacting at the 

national policy level with MET to make community 

ownership of natural resource management 

viable. The idea of establishing conservancies 

had gained a foothold within MET. Although it 

was not directly involved in drafting policy or the 

political process of changing it, the LIFE 

Program supported the idea of conservancies and 

helped provide outreach, materials development, 

and training to identify what was needed to make 

it work. LIFE Program funds supported the 

University of Namibia in undertaking a broad 

review of legislation that influenced wildlife 

management and conservancies. LIFE staff also 

worked with MET personnel and the staffs of 

partner NGOs, such as the Legal Assistance 

Center, to help develop an NGO position paper 

on land reform as part of a national government 

consultation process. LIFE also supported training 

for CBNRM in the MET, led by the Rossing 

Foundation, a local NGO. 

By 1995 MET’s leadership was convinced, and it 

adopted a new working policy to prepare the way 

for development of conservancies. In 1996 

Parliament passed conservancy legislation that 

contained an unusual idea. It would allow local 

people to develop their own wildlife management 

bodies, rather than mandating how they should 

be organized and work. The stage was set for the 

community of Nyae Nyae to speak and act on its 

own behalf. 

3.2 Building Institutional Capacity and 

Mobilizing Community Resources 

(1994–1996) 

Although Nyae Nyae wanted to take the stage on 

its own behalf, it would take time to be able to 

do so. As the last section indicated, the NNDFN 

handed over most of its responsibilities to the 

NNFC in mid-1994. While the NGO would continue 

to provide administrative and institutional 

support, the CBO for the first time would control 

the program and budget. If the transfer of power 

was to be real, however, the NNFC had to be 

revamped. To be effective it could not simply 

claim to speak for the community, it had to find 

ways to let the community’s voice be heard and 

heeded. New structures had to be devised that 

met a fourfold agenda. An effective community 

organization must 1) communicate with its members 

and involve all groups in decision making, 

2) reconcile internal differences and individual 

interests, 3) articulate views and positions effectively 

with external stakeholders, and 4) be recognized 

as legitimate by both community 

members and outsiders (Murphree 1994). The 

new structures would also need to build upon the 

community’s cultural values, beliefs, and social 

organization if they were going to have some 

chance of success (Larson et. al. 1998). Given 

the Ju/’hoan culture, decision making would have 

to be by consensus, with no individuals accruing 

undue power or authority. The structures would 

need to facilitate informed and direct decision 

making by the community, and men and women 

of all age groups would need to be involved. 

To help the community develop such structures, 

the NNDFN and LIFE worked together during


the early months of the community grant to 

devise a process of self-analysis and strategic 

planning. That led to an internal review conducted 

by a group comprising the NNFC’s managing 

committee, 10 senior representatives from 

the council, and 11 other community members. 

As a critical first step, the LIFE technical advisor, 

acting as a “neutral” observer, independently 

conducted interviews in the community to assess 

support for the NNFC. The review group then 

identified the key issues and possible solutions. 

They discussed traditional decision making; the 

characteristics a modern institution had to have 

to be seen as legitimate in the eyes of the larger 

society and government; issues of representation, 

specifically gender and age; and the different 

roles of leadership. Meetings held over six 

months allowed community members time to 

debate these issues among themselves and with 

the n!oresi kxaosi. Including community members 

in frank and meaningful dialogue and joint 

decision making incorporated local knowledge 

and values into the design of more appropriate 

structures. This process worked so well that it 

eventually became an annual event, with the 

LIFE advisor providing an independent audit of 

institutional performance and the NNFC deciding 

what adjustments could be made to build 

broader participation. 

As a result of the first review process, the 

NNFC decided in March 1995 to create a Board 

of Management to oversee the management 

committee and make it more responsive to the 

community. Two representatives were elected 

from each of the four districts in Nyae Nyae to 

join officers of the existing management committee 

and form a board of 13 members. The 

community selected new members on the basis 

of traditional leadership values rather than modern 

skills. Wisdom, experience, and how well a 

person upheld the values of the society outweighed 

literacy and the ability to communicate 

with outsiders, and resulted in the election of 

community elders, including some n!oresi 

kxaosi. Although young men from the original 

management committee remained on the new 

board, power had effectively shifted back to the 

elders. During this period, the NNFC also hired 

an institutional consultant to provide board 

members with training and support in staff management, 

strategic planning, proposal writing, 

work plan development, leadership, and financial 

management. 

The board scheduled bimonthly meetings to 

review how the development program of the 

NNFC was being handled, to set policies, and to 

plan for the short and long terms. During the 

intervening month, board members would hold 

community meetings in their respective districts 

to gather and share information. The board had 

the authority to make decisions, and it was the 

primary mediator between community members 

and NNFC operating officials and outsiders (i.e., 

state agencies, donors, and NGOs). 

To further insure that the new board did not 

become alienated from the membership, special 

attention was paid to the community rangers. 

The new board met with the rangers in mid-1995 

to clarify roles and establish accountability. The 

rangers’ primary role was to create feedback 

loops that facilitated the free flow of information 

within NNFC so the board could assess the 

impact of its actions and gauge community sentiment 

and the community could participate in 

decision making. Rangers were asked to make 

monthly reports to the board about education, 

health, and water in their districts—all of the 

development issues facing the community. 

During the following month, rangers would 

report back to the n!oresi in their districts about 

decisions made at the board meeting, provide 

updates on visitors to the area, and disseminate 

information on relevant legislative changes in 

Namibia. To insure the accuracy of information, 

rangers were insulated from conflicts of interest 

by abstaining from any decision-making or representative 

role. According to one community 

member, “A community ranger is not an individual, 

but all the inhabitants of the district.” In 

effect, the eyes, ears, and consciences of local 

people are opened to him, and he becomes “the 

link that broadens community consciousness to 

NNFC ... levels” (Powell 1995). The rangers 

also collect information about the land and environment—including 

data on animal populations, 

grazing areas, bush foods, and plants—that 

would otherwise be scattered among the n!oresi. 

The NNFC hired a natural resource advisor in 

1995 to train and supervise community rangers 

in data collection techniques and analysis. 

These skills proved crucial as the proposal for


establishing a conservancy surfaced and the 

rangers’ role grew. 

In mid-1995, the new Nyae Nyae Wildlife 

Management Committee held its second meeting, 

bringing together MET staff, NNFC representatives, 

and the community rangers. MET/LIFE 

began to work with the community rangers in a 

participatory mapping process that would allow 

local people to visualize their resource base, 

articulate the names of landmarks in the native 

language, and gather knowledge that had been 

scattered among individuals and across n!oresi. 

This process had several beneficial results. It 

allowed MET and the community to develop a 

common language to discuss wildlife management 

and other issues. MET began to see how 

much information the community had to 

contribute; perhaps even more important, the 

community developed greater self-confidence as 

it realized the same thing. Finally, a new set of 

tools was being developed and put at the community’s 

disposal. In the years ahead, new training 

programs would build on the concepts involved. 

Project maps would be drawn that used flow diagrams 

and problem trees and allowed the board 

and the rangers to plan and target research in a 

variety of programmatic areas. These “maps,” 

too, would have a double-sided benefit. They 

would bolster the confidence and authority of the 

people who made them, and they would prove to 

be valuable in communicating community interests 

to outside actors. 

By the end of the year, MET policy was crystallizing 

around the idea of conservancies, and the idea 

was being discussed in Nyae Nyae. The LIFE 

advisor acted as a facilitator in these discussions 

and in the conservancy planning process that followed. 

Facilitation can be defined as “remov[ing] 

the impediments to opportunities for people to 

learn from themselves and to speak for themselves” 

(Murphree 1996). One of the principal 

impediments is lack of access to information, and 

opening the flow was the first step that had to be 

taken. In collaboration with the community 

rangers and the NNFC’s natural resources advisor, 

the LIFE technical advisor visited a number of villages, 

attended district meetings, and spoke to the 

NNFC leadership about the conservancy concept 

and requirements. The technical advisor also held 

sessions for the NNFC leadership to prepare them 

to brief the community about a conservancy. 

In early 1996 a conservancy workshop and district 

meetings, attended by 15 percent of adults and all 

the n!ore kxaosi, were held. This coincided with 

completion of the second annual performance survey 

of NNFC. All these showed that there was 

significant support in the community for the management 

board, but that the process of institutional 

transformation was not yet complete. A survey of 

randomly selected community members indicated 

that everyone had heard about the efforts to plan 

for wildlife management. Although the depth of 

understanding varied, this was a marked improvement 

over results from the previous year. It was 

also clear that the multiple lines of communication 

that had been opened were reaching different 

groups within the community: 

• Community rangers had been particularly 

effective in reaching their peers, young men. 

• District meetings seemed more effective in 

reaching men than women, who made up 

less than 40 percent of the participants. 

This was not surprising for an open public 

forum, but the fact that few attendees 

passed information on to members of their 

n!ore who did not attend was unexpected. 

• Board members seemed to be doing an 

adequate job of reporting back to their own 

age group, elders. However, they did not 

move between villages, so the 55 percent 

of n!oresi without a board member only 

had access to information through district 

meetings and the community rangers. 

• People who attended the Representative 

Council meetings felt well informed and felt 

that they had participated in decision making. 

However they, too, did not communicate 

results to residents of their n!oresi. 

• Young women had the least effective and 

most indirect means of learning about 

board decisions and were dependent on 

information filtering down to them by 

word of mouth. 

The Board of Management took steps to address 

some of these problems. Agreeing that the interests 

of women were not adequately included in 

the decision-making process, the board decided 

to expand its membership to facilitate communication 

with women in the community. Each district 

would add a representative to bring total


board membership to 5 women and 12 men. 

Since the Representative Council meetings 

seemed to involve in decision making only the 70 

or so people attending them, the board decided it 

would be better to hold the meeting once rather 

than twice yearly, and to use the savings to 

engage more community members directly. An 

annual general meeting, open to all residents, 

would be held each May or June. 4 

None of these procedural steps, however, 

addressed lingering doubts in the community 

about the proposal for a conservancy. Most 

people had responded positively, but some 

feared that the idea was a ruse to expand the 

game reserve and evict local people. An 

exchange visit in March 1996 that allowed 

NNFC leadership and rangers to talk to the people 

implementing the CAMPFIRE Program, a 

similar effort in Zimbabwe, proved to be an 

important turning point. 

The most encouraging lesson was that the 

CAMPFIRE Program had a five-year track 

record of providing benefits from game management 

that local residents were using for projects 

they had identified as priorities. As one 

Zimbabwean told a Namibian counterpart, “We 

also didn’t believe the program would work. We 

didn’t think we could trust the Department of 

National Parks and didn’t understand how we 

would benefit. Now we have a community center, 

a small store, and an electric fence to protect 

our crops from elephants. The elephants are paying 

for our development.” The Ju/’hoan visitors 

were also impressed with the participatory planning 

of the various CAMPFIRE projects, and 

agreed to undertake a similar planning effort in 

their own community to identify its priorities. 

While the apparent success of CAMPFIRE was 

reassuring, some of the things they saw and heard 

raised concern among the Namibians. Most 

importantly, they wondered about the lack of feedback 

channels between decision makers on management 

committees and the community at large. 

Community meetings were not apparent, and 

many residents complained about being uninformed. 

The fact is that the communities, including 

the decision makers, were excluded from some 

information channels. The Department of 

National Parks, for example, controlled wildlife 

monitoring and set the quotas. The Ju/’hoan 

became more convinced than ever of the importance 

of community rangers. Unless they completed 

their patrols thoroughly and transmitted the 

results accurately, the Ju/’hoan would lack the 

independent information needed to make management 

decisions and convince others to honor them. 

When they returned home, NNFC leaders took 

their message to the community in a series of local 

meetings. There they attested to their belief that 

the conservancy was the right path to follow, and 

through the new structures of communication the 

community gave them the go-ahead to proceed. 

3.3 The Community as Effective 

Stakeholder (1996–1998) 

The LIFE Program had taken an “empowerment” 

approach to participation by the Ju/’hoan for two 

interrelated reasons. First, the community could 

not manage its resources over the long-term without 

effective organization. Second, it would not 

get the opportunity to do so unless it could alter 

the prevailing pattern that favored the concentration 

of power in the hands of external actors. 

Aided by the change in legislation, it became possible 

to move forward on both fronts. Establishing 

a conservancy would require the community to 

demonstrate it could formulate a management plan 

and had the means to carry it out. In doing so it 

would begin the process of realigning power relations 

so that the Ju/’hoan were on more equal 

footing with the other stakeholders in the area. 

Parliament set the bar for establishing a conservancy 

and specified requirements that had to be 

met (Aribeb 1996). There had to be clear physical 

boundaries that neighbors accepted and 

respected. The people living within the conservancy 

had to define its membership, and there 

had to be a plan for equitable distribution of 

benefits. A representative body, accountable to 

the community, had to be in charge of running 

the conservancy, and it had to demonstrate commitment 

to and capacity for sustainable wildlife 

management. Before a conservancy could be 

legally established, MET had to certify an offtake 

quota, and the governor of the region had to 

approve the boundaries. 

To prepare the ground for final approval, the 

LIFE Program pursued two strategies. First, both 

directly and by supporting the efforts of the institutional 

consultant, the program provided skills,


training, and facilitation of community problem 

solving to strengthen the NNFC’s ability to plan 

and manage a conservancy. The NNFC also used 

LIFE funds to add staff, hiring the wildlife biologist 

and range management expert mentioned in 

the introduction, and later a tourism advisor and 

a craft specialist. Second, the LIFE Program 

worked as a broker between the community and 

the MET, often assisting both groups to find 

underlying commonalities by creating opportunities 

to share viewpoints and perspectives. When 

members of each side met in sessions of the 

NNWMC to discuss conservancies, they discovered 

that the goals of the MET and the indigenous 

community were amazingly consistent. 5 

The LIFE advisor had prepared the way by leading 

the NNFC through a goal-setting activity that 

allowed the community to articulate its objectives 

without influence or pressure from the MET. 

A March 1996 meeting facilitated by the LIFE 

advisor provides a sense of how dialogue between 

the two parties evolved. MET representatives and 

the NNFC leadership were asked to independently 

identify the five or six wildlife species that 

were most important to them. Each group also 

had to specify the criteria used to rank importance. 

Not surprisingly the two parties chose 

many of the same species, with the important 

exception of the community initially omitting elephants 

and predators (lions, leopards, and hyenas). 

The groups identified different criteria, 

however, with one important exception. The 

community’s criteria emphasized importance for 

manufacturing household items; spiritual value 

for healing; meat; and income. The MET’s criteria 

emphasized importance to biodiversity conservation, 

ecological integrity, and financial returns. 

Each group then explained their “picture” to the 

entire group. After a long discussion of biodiversity—what 

it is and why it is important—the 

community members agreed to add this criteria to 

their matrix. And when the community realized 

the financial benefits that elephants and predators 

could bring to the community, those animals were 

added to the species list. 

Perhaps more important than the actual matrix was 

the discussion it sparked. Both groups saw value 

in managing the wildlife, and the MET was willing 

to accept use by the community in return for 

their anticipated support. Similarly the Ju’/’hoan 

were willing to tolerate the threat and costs of elephants, 

lions, and other predators if they could be 

assured of financial return from these species. 

Both sides saw the importance of collaboration 

with the private sector in meeting their objectives. 

The LIFE Program agreed to facilitate contacts 

with vendors to solicit bids and terms. 

One of the last remaining hurdles was agreeing 

on how to determine baseline population numbers 

for each species in order to set offtake quotas. 

Although the face-to-face dialogues had 

made progress in resolving problems between 

the two parties, the long history of mistrust and 

lack of transparency and accountability made it 

impossible for either side to simply accept 

information provided by the other stakeholder in 

a matter this crucial. Senior MET officials 

joined the NNWMC dialogue soon after 

Parliament passed the conservancy bill, but 

holdover staff in Tsumkwe seemed either 

incompetent to perform the technical tasks 

assigned to them or unwilling to do so. From 

MET’s point of view, the NNFC had no experience 

in conducting so complicated a task. 

The LIFE Program addressed this mismatch by 

providing funds for the NNFC to hire their own 

wildlife biologist and range management expert 

as consultants. They were to play a dual role, 

helping the community develop a plan that could 

stand on its merits and providing analysis of MET 

figures to assess their reliability. As discussions 

between MET staff and the NNFC leadership 

unfolded, it became clear that undertaking independent 

data collection and comparing results 

would only exacerbate the conflict. When this 

was factored into the duplication of costs and the 

number of skilled people it would take, the consultants 

suggested a combination of approaches 

(Stuart-Hill and Perkins 1997). MET would conduct 

a regional census of game populations to 

provide a broad view of distribution and population 

trends. MET and the NNFC would jointly 

carry out a census to obtain estimated populations 

in Nyae Nyae. Each party would independently 

evaluate the buffalo population to assess its condition 

and gender and age distributions, and then 

compare the results. Finally, the NNFC would be 

responsible for monitoring harvested game. 

In May 1997, just as the final snarls seemed 

smoothed out and the conservancy was on its


way, the governor of Otjozondjupa Region 

refused to ratify the boundaries. Apparently this 

stemmed as much from uncertainty about, as 

rejection of, the concept. Conservancy advocates 

in Namibia had not brought local government 

into the process sufficiently for officeholders to 

understand the policy or its effect on their interests. 

Outreach was limited to an explanatory letter 

from the Permanent Secretary of MET and to 

a governors’ workshop held jointly by MET and 

LIFE in June 1997. Most regional authorities 

simply did not know what conservancies were 

when the first communities approached them for 

approval of proposed boundaries. Once the MET 

explained the policy, its importance, and the role 

of regional government, the governor signed the 

application. As a senior staff member in the 

MET explained it, “Many regional councils are 

now behind the conservancy policy. We are the 

only ones paying any attention to them.” 

In January 1998, the MET officially recognized 

the Nyae Nyae Conservancy as the first in the 

country and approved an offtake quota of valuable 

wildlife species. With this authority the NNFC 

leadership, having discussed options with the conservancy 

members at district meetings, negotiated 

a contract with a prominent safari operation that 

included both trophy hunting and photographic 

tourism. In addition to paying fees to the community, 

the operator agreed to provide training 

and employment for some conservancy members. 

IV. The Road Ahead—Problems 

and Opportunities 

The NNFC and the community it represents 

finally got their conservancy. But can they make 

it work over the long term now that they face the 

very real challenge of limiting subsistence hunting? 

While local residents have agreed to a 

moratorium on threatened species, it is unclear 

whether community cohesion and the institutional 

framework are strong enough to make the 

decision stick. Discussions about how to use 

money from the conservancy illustrate the difficulty. 

Most conservancy members have agreed 

that it is critical to use earnings from tourism to 

purchase stock to replace the meat that will be 

lost from reduced subsistence hunting. The 

debate has centered on purchasing springbok (a 

species of small antelope) or goats. The NNFC 

would manage the springbok as a common 

resource, while the goats would belong to each 

n!oresi. An elder made the following telling 

comment: “We would prefer the goats because 

they would be ours and we would take care of 

them. The springbok would move all around 

and would be taken by people living elsewhere.” 

Much will depend on the ability of the NNFC to 

resolve its own inner contradictions so that all 

elements of the community believe their interests 

are being served and protected. Much remains to 

be done because linkages to the community as a 

whole are still tenuous. Only a few board members 

go beyond their immediate n!ore to report 

on decisions of the NNFC leadership. Adding 

women board members was an important step, 

but it did not open access to information or more 

involvement in decision making for the majority 

of women. One idea to redress these problems 

has been to expand the community rangers. 

Women would be selected who would focus on 

craft production, commercialization of wild 

foods, monitoring the impact of game and livestock 

on wild plants around water points, and 

making sure that the board is exposed to a 

broader set of issues and concerns. 

This is not simply a matter of gender equity but of 

using the conservancy to build a more secure base 

for the future. The Ju/’hoan are dependent on 

more than game for survival. One indication of 

this came in the difficulty the community had in 

establishing conservancy boundaries. The task 

seemed simple enough from the outside. The veterinary 

fence to the south, the border fence with 

Botswana to the east, and the Khaudum Reserve to 

the north left only the western border to mark. 

Meetings were held with n!oresi in the west, but 

these communities and their leaders chose not to 

join the conservancy. The senior community 

ranger visited the westernmost villages that wished 

to join and took Global Positioning System (GPS) 

readings for their resources that would demarcate 

the last remaining boundary line. It still took several 

months for the NNFC leadership to resolve the 

matter. Some community members not only 

wanted to include the villages that had declined to 

join but areas even farther west that lay outside 

Nyae Nyae altogether and had no wildlife. When 

asked why, people explained that they did not want 

to be cut off from gathering bush foods essential to 

their livelihoods during times of drought.


The effort to expand activities from the conservancy 

beyond wildlife to crafts that can be sold 

to tourists visiting the area and the Khaudum 

Reserve can also be viewed in this context. It 

not only makes good economic sense, it is also a 

way of building support for the conservancy in 

villages that do not have ample game. It also has 

the advantage of bringing a broader array of 

resources into the community-based system of 

sustainable management. 

However a new problem has accompanied the 

new opportunities. Now that the Ju/’hoan see 

many of their crafts as valuable sources of 

income, the traditional view of ownership has 

come under stress. By custom the raw materials 

belong to all members of the n!ore in which 

they occur, but they become the property of the 

person doing the craftwork. The n!ore kxao, as 

leader of the group and steward of its common 

resources, manages the resource base for the 

benefit of everyone. So it was a surprise when 

a steward, just before the conservancy opened, 

began charging craft producers fees for the 

resources they had collected and were using. 

The issue was discussed at a village meeting, 

and the villagers, at the urging of NNFC, agreed 

to uphold the traditional system. The n!ore 

kxao went on charging fees anyway. His 

actions were confined to one village, but they 

point to a new set of issues that will not go 

away and that the Ju/’hoan will have to address. 

Versions of private ownership may arise that can 

result in social and economic inequality and 

fracture support for the community institutions 

managing the conservancy. Serious resource 

degradation could follow, as happened in Kenya 

when the government created “group ranches” 

on land that the Masai had previously held collectively 

(Lawry 1990). 

Many of the problems that the Ju/’hoan face are 

not of their own making. What they are being 

asked to do is extraordinarily difficult—to manage 

a resource to which they have limited rights, 

and to do so without secure tenure over the communal 

land upon which the sustainability of that 

resource ultimately depends. The final section 

looks at some of the lessons this project offers to 

community-based resource management not just 

in Nyae Nyae, but in Namibia and elsewhere. 

V. Lessons from the Ju/’hoan 

Bushmen 

The story of the Ju/’hoan is unique in many 

ways. It is developing against a backdrop of a 

relatively progressive policy and legislative 

framework, with secure long-term funding in 

which money and technical assistance are well 

matched to the tasks. It describes a homogeneous 

community with a strong cultural identity 

that holds dear its wildlife for both intrinsic and 

subsistence values. Furthermore the community’s 

goals are compatible with those of the 

MET, the leading conservation organization in 

the area. Perhaps most important, there is still 

time left for Nyae Nyae. Ecologists say the 

habitat remains intact because the Ju/’hoan have 

so few cattle. Given additional water sources, 

the game should recover (Stuart-Hill and 

Perkins 1997). 

Yet the Ju/’hoan are traveling a road that many 

other local communities will find familiar. The 

status of the Real People as indigenous and marginalized, 

for instance, has led some outsiders to 

assume that the most effective strategy is to do 

things for the Ju/’hoan rather than to strengthen 

their ability to do things for themselves. Others 

have noted, in myriad places, the damage that can 

spread from this misperception. This perspective 

“reveals the dangers inherent in links between 

community and external actors. External interventions 

can easily shift from facilitation to cooption” 

(Murphree 1994). Murphree concludes: 

“Community-based conservation programs thus 

pose a dilemma: [T]hey require the very community–external 

linkages that have such high potential 

to subvert the community itself.” Murphree 

suggests that clear priorities should be specified 

for all activities and that the community’s interests, 

responsibility, and authority should be paramount. 

Jones (1996b) adds, “Institutional 

relationships must be structured so that outside 

organizations are cast firmly in the role of supporting 

agencies to community organizations.” 

The following lessons can be drawn about conservancies 

and community-based natural resource 

management (CBNRM). They ring with greater 

authority for other communities in Namibia, but 

they offer insights that will be of use elsewhere.


5.1 Legislation to grant rights to select 

resources can be self-defeating if collective 

communal units do not also have or 

receive strong property rights to the 

land itself. 

In Namibia the conservancy legislation clearly 

stipulates that the community does not have 

rights over the land, only usufruct rights over 

some of the wildlife and the benefits derived 

from them. This creates a double bind. The 

official policy to decentralize wildlife management 

by handing it over to the local community 

is subverted by denying the community the 

secure tenure it needs to maintain sustainable 

game populations. For example, in Nyae Nyae 

the community has no legal authority to prevent 

the Herero from moving again into the conservancy 

to graze their cattle. There is no guarantee 

what will happen if government turns a blind 

eye. Unless the conservancy is grounded in 

secure tenure, it will be in constant danger. 

The lack of comprehensive legislation is not simply 

a question of the state trying to retain final 

authority. It also points to how policy reform is 

rarely coordinated, and how the state often 

speaks with more than one voice. Although senior 

policy makers at the MET are aware of the 

double bind, the agency lacks the power to 

address it directly. It has chosen instead to work 

closely with local NGOs to play a prominent role 

in developing an NGO position paper to clarify 

and sharpen the public debate on land reform. 

International conservation NGOs can support 

policy analysis necessary for reform and provide 

this information to the advocates of change. The 

LIFE Program supported a critique of the conservancy 

legislation by the University of Namibia 

and outreach activities by others. 

5.2 Legislation is hollow without the 

resources, skills, and political will for 

implementation. 

By almost any standard, the legislation in 

Namibia is progressive—it gives local communities 

the authority to manage and benefit from 

their resources. What sounds good, however, 

may not be good in practice. In Nyae Nyae the 

MET lacks the financial and human resources to 

carry their share of the load, which threatens to 

undermine the building of an effective partnership 

with the community. MET’s local branch 

staff is frequently unable to meet its commitments 

to collect data or attend meetings. 

Indeed there are doubts about how fully committed 

the agency is to carrying out the legislation. 

A debate still rages within the ranks of MET 

between advocates of preservation and of community-based 

natural resource management. Senior 

officials talk the new talk. But field staff tend to 

change attitudes only with the addition of new 

personnel when holdovers leave by attrition, 

rather than through some systematic process. The 

MET has yet to change job descriptions, performance 

criteria, and training procedures to support 

CBNRM, and many field staff lack the skills and 

experience necessary to work with the community. 

As one MET official casually stated, “I took 

this job because I wanted to be alone in the bush 

with the wildlife, not to work with communities.” 

This debate exists within many conservation 

institutions, and will not be easily resolved. Yet 

unless change occurs throughout an institution, 

the handful of dreamers and visionaries who 

speak for the organization will be unable to shift 

its approach and philosophy on the ground. 

International conservation NGOs can support 

training—targeted at both field staff and national 

policy makers—as well as create forums for policy 

debate. Conservation NGOs are in a position 

to see the big picture and address an institution as 

a whole, rather than argue a narrow point of view 

shaped by the interests of patrons or the guarding 

of bureaucratic turf. However seeing the big picture 

and offering help is not always enough. 

Namibia illustrates the paradox that can ensue. 

LIFE’s attempts to address the lack of political 

will within MET were met by indifference to the 

opportunities for change offered by the program. 

Training works only if the institution wants its 

people trained and if the staff is open to new 

ideas and approaches. The challenge for conservation 

organizations in finding ways of encouraging 

institutional reform and capacity building is 

not simply a question of finding and distributing 

the right manual. One must work closely with 

staff and design efforts that are adapted to the 

specific circumstances at hand.


5.3 Local governments are stakeholders and 

must be involved in the policy process. 

Local governments’ interest in resource management 

within their jurisdictions makes them 

legitimate stakeholders. They play a role in 

coordinating and balancing local interests and 

are often involved in land-use decisions. There 

are several ways to increase their involvement. 

One is simply to keep them informed of what is 

happening and why. They might also be given a 

greater formal role in legitimizing local community 

institutions or activities. Taxes on income 

generated by the conservancy might also be 

paid into the local government coffer. While 

the community’s interests are paramount, other 

interested parties must also be accommodated. 

Local governmental structures, often only 

recently empowered with rights and responsibilities, 

are hesitant to pass on this newfound authority 

to lower levels of social organization. 

Murphree (1991) refers to this as “the bureaucratic 

impulse to resist the loss of authority and 

the tendency to enlarge administrative structures.” 

In addition, when financial benefits are at 

stake, local government may want to retain 

resource control for its own present and future 

obligations. Local public structures may see 

community empowerment as a threat to their 

decision-making authority and the means to reinforce 

or expand their power. 

To prevent local government from hijacking the 

process, legislation must strongly and clearly 

give rights to community institutions and define 

the role the local governmental structure is to 

play. Even if there is a lack of political will to 

fully implement the legislation, communities 

will pressure authorities and demand their rights 

if they know they are being cheated out of them. 

Murphree (1997) writes, “To the farmers of 

communal lands, the delineation of what they 

are missing is a critical step in the escalation of 

their assertiveness.” 

5.4 Fully integrate local knowledge, 

values, and social organization into 

the project cycle. 

While this lesson is not new, the Ju/’hoan case 

supports the tenet that integrating local knowledge 

into the project cycle is likely to result in 

activities that are more appropriate, and therefore 

probably more sustainable. Efforts to do so, 

however, must go far beyond merely documenting 

traditional beliefs and practices, as many 

anthropologists have done in Nyae Nyae, to 

engaging communities in substantive dialogue 

and joint decision making. This takes patience 

and significant resources. Conservation organizations 

need to think in terms of building a longterm 

dialogue grounded in mutual respect and 

trust. Care must be taken not to undermine local 

communities’ rights to self-determination by acting 

precipitously to conserve biodiversity. 

5.5 There can be significant differences 

between democratic procedures and 

democracy. 

The staff of the NNDFN who built the early 

structures of the NNFC had the best interests of 

the Ju/’hoan at heart. They designed the institutional 

structures in the image of what they knew 

best: democratic procedures revolving around 

representatives and elections. Ultimately this 

approach resulted in the exclusion of subgroups 

within the community, particularly women and 

elders, and a takeover of decision making by 

elites. The LIFE Program facilitated the community’s 

search for its own solutions. Recognizing 

the need for an organization that would have 

authority, legitimacy, and be able to communicate 

effectively with external actors, the Ju/’hoan settled 

on the Board of Management, accompanied 

by several additional communication paths: the 

community rangers, district meetings, and an 

annual general meeting. As Megan Biesele 

(1994) writes, “allowing traditional ideas and 

models to persist or to be changed organically by 

the people’s own initiatives is a pretty good indicator 

of democracy at work.” 

The Ju/’hoan have made great strides since 1994 

in building the accountability and transparency of 

their community institutions, but work still needs 

to be done. The current system of district meetings 

is still overly dependent on transportation 

provided by the NNFC, and not all residents 

attend. It could potentially be beneficial to 

explore a more “bottom-up” approach and 

expand the district organizational concept to 

include “village associations.” It would be possible 

for the board to construct, jointly with village 

residents, maps depicting n!oresi that work 

together to manage natural resources. These


groups of collaborating n!oresi could then form 

the basis of village associations. This would 

build on the traditional networks for managing 

common resources. One or more members of the 

board could represent these “n!oresi associations.” 

Current board members would probably 

remain—the change would be in the extent of 

area covered and number of people to whom they 

must report. 

5.6 Outsiders have an important role to play 

as facilitators of community analysis and 

decision making, and as brokers between 

the community and other stakeholders. 

The facilitative role of LIFE’s technical advisor 

for community-based natural resource management 

was crucial to the development of the Nyae 

Nyae Conservancy. Underlying this role was a 

commitment to the community’s inherent right to 

plan, manage, and benefit from their resource use. 

The community learned from mistakes and 

adjusted its program accordingly. The outside 

organization played an important role in undertaking 

independent annual assessments and assisting 

the community with analyzing the issues and 

developing possible solutions. But facilitators 

must consciously recognize the potential dangers 

of inadvertently co-opting the community to the 

facilitator’s point of view rather than sparking the 

development of the community’s own ideas. Cooption 

can too easily subvert rather than support 

community-based conservation. 

The goal is to prepare the community to participate 

in authentic partnerships. An authentic partnership 

has four qualities: mutual trust, transparency, reciprocity, 

and accountability. Both parties must 

know that promises will be honored, and this must 

be demonstrated over time. Agendas must be 

clearly stated; sources of funding, allocations, 

monitoring and evaluation reports, and other pertinent 

information must be shared. Neither party 

should impose a condition on the other that it is 

unwilling to undertake itself. Finally, partners 

must agree on procedures by which they will be 

held responsible for their actions. 

LIFE thought of partnership in two ways. The 

first involved its own relationship with the community 

in building strong and flexible representative 

institutions. The LIFE Program played a 

critical role in facilitating community-level discussions 

of the key issues in order to identify solutions 

(Jones 1996b). Providing the community 

with an annual independent assessment and then 

facilitating their analysis and integration of the 

results into project management was key to building 

skills in problem solving, gender analysis, 

institutional development, and strategic planning. 

LIFE also facilitated training and helped the community 

hire and learn how to manage the technical 

assistance it needed, based on the belief that previous 

low levels of participation in decision making 

stemmed from the community’s lack of skills and 

knowledge. Care was taken to make sure that the 

community set the pace so that facilitation did not 

mutate into a patron-client relationship in which 

the community took a secondary position as the 

“less skilled, less informed” partner. 

As the community found its own voice, attention 

turned to helping it become an effective partner 

with other stakeholders in resource management. 

This would eventually involve other actors, but 

the key early relationship was with MET. The 

LIFE technical advisor acted as a broker in the 

evolving relationship. Experience has shown that 

for an authentic partnership to form, all stakeholders 

must recognize the community’s right to 

participate in decision making. So a key early 

decision was to narrow the focus of the 

NNWMC to wildlife issues within Nyae Nyae. 

As a result, the stakeholders were limited to 

MET staff, subsequently including the 

Directorate of Forestry, and the NNFC, represented 

by its board and the community rangers. 

By limiting the topics and thereby the interest 

groups, it was easier to reach concrete decisions 

and implement them. Generally LIFE’s technical 

advisor would meet with NNFC representatives 

before the NNWMC meeting to help them plan 

strategy, prepare discussion points, and decide 

what they believed was or was not negotiable. 

During the meetings, the advisor helped each 

side see the other’s position, understand the motivations 

behind it, and develop a mutually understandable 

language for seeing the big picture and 

bringing issues and solutions into focus. 

To ensure that the community could participate 

fully, meetings were scheduled whenever possible 

in Nyae Nyae since MET headquarters in the 

capital city is a hard eight-hour drive away. That 

placed a burden on MET, which is also often


strapped for time and resources. So the LIFE 

Program provided funds to enable the NNFC to 

reimburse its representatives when travel was 

necessary. NGOs and donors working with community-based 

organizations must realize that 

meetings will often be held far away from the 

local community, in cities and office buildings of 

more powerful stakeholders. Community representatives 

will need to be compensated for time 

spent away from their homes and work. They 

will also need resources to be able to hold meetings 

with their constituents before they depart 

and after they return. 

Communication did improve and power relations 

became more balanced once MET adopted community-based 

conservation as its official policy 

in 1996, but obstacles to an honest partnership 

remain. Prior to establishing the conservancy, 

the NNWMC meetings never resulted in joint 

decision making by the local community and 

MET. The underlying problem is that the NNFC 

lacks the authority to participate in all aspects of 

wildlife management, the most obvious being the 

lack of control over land. That may begin to 

change as the NNFC shows its ability to manage 

the conservancy, and as realization deepens in 

MET that neither the central government nor the 

community can manage wildlife sustainably until 

there is communal land tenure. 

Finally, while not explicitly analyzed in this case 

study, the LIFE technical advisor worked as a 

member of a team. The expertise and knowledge 

of a diverse group of specialists were needed to 

support the integrated conservation and development 

program of a conservancy. Because the 

Nyae Nyae Conservancy was developed within 

the context of a national CBNRM program, it 

was also important to facilitate the sharing of 

experiences and learning within the network of 

communities developing conservancies. 

5.7 Replication is not duplication, but 

projects have much to learn from 

one another. 

Visiting the CAMPFIRE Program in Zimbabwe 

was a crucial step in the evolution of the Nyae 

Nyae Conservancy, because it gave NNFC leaders 

and the community rangers confidence in the 

enterprise and a better perspective on how they 

would do things differently. Now Nyae Nyae has 

blazed a trail that can be followed by other communities 

in Namibia. 

Several factors will make it easier for other 

Namibian communities to follow and embellish 

the NNFC map. The national program is growing, 

and more NGOs and communities are signing 

on. As they plan and develop conservancies 

there will be greater opportunity to exchange 

experiences and skills. The MET is slowly 

evolving its methods and philosophy to be better 

able to implement the policy. Local government 

is increasingly involved and supportive. Specific 

tools for awareness building, for using GPS mapping 

to promote participation and communication, 

and for analyzing institutional capability 

have been developed. 

Yet one should not presume that progress will be 

uniform. Several factors have also made development 

of the conservancy in Nyae Nyae easier 

than it might be elsewhere. The conservation 

goals of the MET—to maintain biological diversity 

and ecological processes and to improve the 

quality of life for all Namibians—are compatible 

with the livelihood strategies of the Ju/’hoan. 

Generally, conflicts have not stemmed from differences 

in objectives, but from differences in the 

means employed to reach those objectives. The 

conservancy is an approach, legitimized through 

legislation, that both parties have agreed to follow 

to reach similar goals. 

In other regions of Namibia compatibility of 

goals is far less clear. In areas where crop production 

is dominant, for example, conflicts are 

more prevalent. Furthermore, the specific contexts, 

both social and ecological, are different. 

Although the conservancy concept still offers a 

viable option in these cases, the size and membership 

of the conservancy, the ways of benefiting, 

the institutional structure, and the definition 

of the partnership will vary widely. 

Many challenges lie ahead for the Ju/’hoan and 

the other communities involved. In some ways, 

the most difficult work—ensuring that the community 

manages the conservancy sustainably and 

delivers benefits equitably—is still ahead. For 

that to happen, the government-community partnership 

must continue to evolve. Without the 

willingness to learn from one another, management 

of wildlife and other natural resources is 

likely to prove impossible.


Endnotes 

1. This work draws upon the ideas and experiences 

of many other practitioners and academics, 

including Marshall Murphree, Hugh Hogan, 

Murray Dawson-Smith, Neil Powell, Jo Tagg, 

and the whole LIFE team. I thank Janis Alcorn 

and Mac Chapin for their comments and close 

readings of earlier drafts. I am particularly 

indebted to Brian Jones, a longtime colleague 

and friend, without whom the work of the conservancies 

would not be possible. Most important, 

I wish to thank the people of Nyae Nyae for 

sharing with me their time and ideas, especially 

Kxao Moses =Oma, Benjamin /Ai!ae /Aice, and 

Shebby Mate. I would not know what I think I 

know today if it were not for their patience, 

detailed explanations, and support during my 

years in Namibia. 

2. In January 1997 a small group of Bushmen 

staged a protest demanding the return of their 

indigenous territory, presently Etosha National 

Park. They were quickly arrested and silenced, 

but not before their story reached the international 

press. Then in April, John Hardbattle from 

Botswana took a case to the Human Rights 

Commission to protest the removal of Ju/’hoan 

from the Central Kalahari Game Reserve. 

3. The evolution of the NNFC before 1995 is 

documented more fully in Wyckoff-Baird (1996). 

4. As a result, attendance rose nearly fourfold, 

reaching as high as 250, or more than 25 percent 

of all adults. 

5. The Nyae Nyae Conservancy constitution 

states: “The community residing in the Nyae 

Nyae area of Tjum!kui District wishes to establish 

a conservancy to: 1) restore and sustainably 

manage and utilize the area’s wildlife for the 

benefit of present and future generations and for 

maintaining Namibia’s biodiversity; and 2) promote 

the economic and social well-being of the 

members of the conservancy by equitably distributing 

the benefits generated through consumptive 

and nonconsumptive exploitation of the wildlife.” 

References 

Aribeb, Karl. 1996. Namibia’s Initiative towards 

Community-Based Wildlife Management. In 

African Wildlife Policy Consultation: Final 

Report. London: Overseas Development 

Administration. 

Biesele, Megan. 1990. Shaken Roots: The 

Bushmen of Namibia. Marshaltown, South 

Africa: EDA Publications. 

———. 1994. Human Rights and 

Democratization in Namibia: Some Grassroots 

Political Perspectives. Paper prepared for the 

Annual Meeting of the African Studies 

Association, Ontario. Typescript. 

Brown, Michael and Barbara Wyckoff-Baird. 

1992. Designing Integrated Conservation and 

Development Projects. Washington, D.C.: The 

Biodiversity Support Program (BSP). 

Hitchcock, Robert. 1992. Communities and 

Consensus: An Evaluation of the Activities of the 

Nyae Nyae Development Foundation in 

Northeastern Namibia. Report to the Ford 

Foundation and the Nyae Nyae Development 

Foundation: Windhoek, Namibia. 

Jones, Brian. 1996a. The Northern Kalahari: 

Integrating Development and Conservation. In 

Namibia Environment. Vol. 1. Windhoek, 

Namibia: Ministry of Environment and Tourism. 

———. 1996b. Institutional Relationships, 

Capacity, and Sustainability: Lessons Learned 

from a Community-Based Conservation Project, 

Eastern Tsumkwe District, Namibia, 1991–96. 

Directorate of Environmental Affairs (DEA) discussion 

paper. Windhoek, Namibia: Ministry of 

Environment and Tourism (MET). 

Larson, Patricia, Mark Freudenberger, and 

Wyckoff-Baird, Barbara. 1998. WWF Integrated 

Conservation and Development Projects: Ten 

Lessons from the Field, 1985–1996. Washington, 

D.C.: WWF. 

Lawry, Stephen. 1990. Tenure Policy toward 

Common Property Natural Resources in Sub- 

Saharan Africa. Natural Resources Journal 30. 

Lee, Richard. 1993. The Dobe Ju/’hoansi. Fort 

Worth, Texas: Harcourt, Brace College Publishers. 

Marshall, Lorna. 1976. The !Kung of Nyae Nyae. 

Cambridge, Mass.: Harvard University Press.


Murphree, Marshall. 1991. Communities as 

Institutions for Resource Management. Harare, 

Zimbabwe: University of Zimbabwe, CASS. 

———. 1994. The Role of Institutions in 

Community-Based Conservation. In Natural 

Connections: Perspectives in Community-based 

Conservation, eds., David Western and Michael 

Wright. Washington, D.C.: Island Press. 

———. 1996. Articulating Voices from the 

Commons: Interpretation, Translation, and 

Facilitation. The Common Property Resource 

Digest 38 (June). 

———. 1997. Congruent Objectives, 

Competing Interests, and Strategic Compromise: 

Concept and Process in the Evolution of 

Zimbabwe’s CAMPFIRE Programme. Paper presented 

to the Conference on Representing 

Communities: Histories and Politics of 

Community-Based Resource Management, June 

1–3, in Helen, Georgia, USA. 

=Oma, Kxao Moses, and Benjamin /Ai!ae /Aice. 

1996. Community-Based Natural Resource 

Management in Nyae Nyae, Eastern Namibia: An 

Approach by the Ju/’hoansi to Common Property 

Management. Paper prepared for the Annual 

Meeting of the International Association for the 

Study of Common Property, in Berkeley, Calif. 

Powell, Neil S. 1995. Participatory Land Use 

Planning: Methods Development Incorporating 

the Needs and Aspirations of Indigenous Peoples 

in Natural Resource Management; a Case from 

Eastern Bushmanland, Namibia. Report to the 

Directorate of Environmental Affairs, Ministry of 

Environment and Tourism (MET). Photocopy. 

Stuart-Hill, Greg, and Jeremy Perkins. 

1997. Wildlife and Rangeland Management 

in the Proposed Nyae Nyae Conservancy. 

Windhoek: NNFC. 

Tagg, Jo, Dorte Holme, and Andre Kooiman. 

1996. Communities and Government Jointly 

Managing Wildlife in Namibia: Geographic 

Information Systems (GIS) as a Monitoring and 

Communication Tool. Windhoek, Namibia: 

Ministry of Environment and Tourism. 

Wyckoff-Baird, Barbara. 1996. Democracy: 

Indicators from Ju/’hoan Bushmen in Namibia. 

Cultural Survival 20 (2).

PART THREE: CONCLUSIONS

CHAPTER 8 

Signposts for the Road Ahead 

The concluding part of this book contains two sections. 

The first draws lessons that emerged from 

discussions of the case studies at a workshop on 

collaborating with indigenous groups held by 

WWF in 1998. The second looks to the future 

and what conservation organizations are doing, or 

need to do, to advance stakeholder collaboration. 

I. Lessons from Experience 

In 1998 WWF staff from programs and projects 

around the world met to pool their knowledge 

about collaborating with indigenous groups and 

to distill from firsthand experience lessons for 

future conservation efforts. Case studies presented 

by their authors provided rich, practical 

information to fuel the discussions. While the 

case study contexts were quite different, several 

common themes emerged. In general, the cases 

revealed that what worked best were communitylevel 

efforts that involved 

• dialogue, joint activities, and mutual learning 

on shared interests in natural resource 

management; 

• in-depth understanding of the local socioeconomic 

context and institutions; 

• focus on a resource that the community 

believed was threatened; and 

• relatively small financial inputs and technology 

that matched communities’ skill 

levels. 

The lessons are organized under four themes that 

were highlighted during the workshop discussion: 

finding common goals, strengthening 

indigenous institutions for collaboration, sharing 

conservation knowledge, and establishing appropriate 

project processes. Discussion of each 

theme concludes with a series of recommendations 

for how conservation organizations can 

improve collaboration with indigenous groups. 

Many of these recommendations are applicable 

to work done at larger scales, such as ecoregionbased 

conservation. 

1.1 Finding Common Goals 

WWF’s experience reveals that while the goals of 

conservation organizations and indigenous peoples 

often overlap, their motivations and methodologies 

often differ. Indigenous people want to 

use natural resources sustainably to ensure their 

livelihoods, maintain control over their lands, 

preserve their cultural heritage, and provide for 

their children and grandchildren. In Brazil, 

Namibia, and Bolivia, indigenous communities

140 Signposts for the Road Ahead 

were concerned about the decline in wildlife 

populations not only because game is the most 

desired food, but also because hunting is a central 

aspect of their social life. 

Conservation organizations, on the other hand, 

want first and foremost to conserve the biodiversity 

of important ecosystems around the world. 

To achieve this goal, they support a variety of 

strategies including strict protection, sustainable 

natural resource management and related socioeconomic 

activities, policy reform, partnerships, 

and capacity building. 

Yet there are a number of areas where the interests 

of the two parties intersect. Geography is a 

powerful force binding indigenous groups and 

conservation organizations together. As discussed 

in the first two chapters, much of the biodiversity 

that conservation groups want to 

conserve is in areas where indigenous people 

live. Conservation organizations can benefit 

from the fact that indigenous groups are committed 

to living on and protecting the land over the 

long term. In turn, by collaborating with conservation 

organizations, indigenous groups can gain 

additional skills and resources to help them protect 

their lands and their ways of life. Mapping 

and other activities related to documenting 

resource management, for instance, can be 

important in establishing and maintaining legal 

tenure. Beyond tenure, both parties want to prevent 

environmental damage from large-scale economic 

and infrastructure development, and to 

develop sustainable alternatives. Finally, both 

have important knowledge to share about conservation 

and resource use. These common interests 

can form a foundation for collaboration, and set 

the stage for lasting partnerships. 

Where this confluence of interests sometimes 

splits is in setting resource management priorities, 

such as which species are most important to protect, 

appropriate levels of resource use, and what 

strategy will be most effective. Differences also 

tend to emerge regarding the degree to which 

conservation organizations should support economic 

development activities. Geographically, 

conservation organizations are increasingly interested 

in conserving large regions containing multiple 

ecosystems that often go beyond the 

boundaries of indigenous territories. 

In some cases, differences that seem deep-seated 

are actually the result of misunderstanding. For 

example, while indigenous groups are generally 

not familiar with the term biodiversity, they are 

concerned with conserving a diversity of 

resources to maintain healthy subsistence 

economies, to protect important aspects of their 

cultures, and to benefit future generations. If 

their respective priorities are better understood 

through creative planning and compromise, the 

two groups can collaborate to achieve their goals. 

In the case study from Ecuador, the objectives of 

the government, donors, NGOs, and the indigenous 

federation and its community members 

overlapped, but did not completely coincide. The 

Runa wanted to secure their land and livelihoods 

over the long term. Beneath this unity of purpose, 

however, the federation and the participating 

communities had their own agendas, which 

were not thoroughly aired before the project got 

under way. Development agencies and conservation 

groups were promoting a sustainable forestry 

enterprise that would help put the market to work 

conserving habitat. They did not ask whether the 

model chosen was appropriate to communities 

that had never worked together or had prior experience 

running an economic enterprise. Funding 

was short-term and tightly scheduled so that 

basic questions about local capacity to carry out 

the project once outsiders withdrew were not 

asked or answered. Insufficient attention was 

also paid to the federation’s capacity to help not 

only these but other communities once the funding 

ran out. The government, meanwhile, moved 

forward on its own and established a park in 

which Runa communities would have no decision-making 

role but would serve as a cost-effective 

buffer to prevent encroachment by colonists. 

As a result, much of the community now sees the 

park not as a protective shield but as a loss of 

control over their ancestral territories. If the 

stakeholders had discussed and reconciled their 

objectives at the outset, a different project design 

might have emerged that would have been more 

sustainable and had wider impact. 

While indigenous people and conservationists 

may have common interests, the time frames for 

achieving their respective goals are often different. 

Conservation groups are often bound to a 

three-to-five-year project cycle established by

Signposts for the Road Ahead 141 

their donors. Obviously the lives of indigenous 

peoples do not revolve around a project cycle. 

They often need time to assess what is happening 

to their environment, absorb new information and 

ideas, and develop their own solutions. In the 

Brazil case, when the community said they 

needed several months to discuss the proposed 

management plan, project staff gave them the 

space to work through the issues. Developed 

more recently, the Namibia project is unique 

among conservation and development projects in 

that it was designed to be implemented over a 

10-year period. This long-term commitment 

reflected awareness of the time it takes to understand 

the local context, build trust, strengthen 

capacity, create a favorable policy environment, 

and design appropriate activities. Once a grant 

ends, conservation organizations can also support 

indigenous groups in other ways, such as providing 

them with advice and information and with 

links to networks and other resources. 

The collaborative process is often as important as 

the explicit project goals. Priorities need to be 

clearly articulated and discussed at the beginning 

of a potential collaboration to ensure that common 

ground exists, and to avoid misunderstandings 

down the road. In some cases, groups may 

have secondary agendas that will emerge through 

a process of dialogue. The development of 

resource management plans was successful in the 

Brazil, Namibia, and Papua New Guinea cases 

because of how decisions were reached. All of 

them involved a long process of dialogue with 

communities, including joint data collection, 

which allowed new information to be absorbed 

and stimulated the recovery of traditional knowledge. 

By working closely with the community, 

an outside expert earned peoples’ trust and 

helped them identify and assess their options. 

Because the community could take the lead role 

in developing a strategy, a consensus was formed 

that made the strategy easier to implement. 

Conservation organization staff or other outside 

advisors who play roles as facilitators, acting as 

brokers between the community and other stakeholders 

and exposing communities to new ideas, 

must be sure that the community accepts their 

role and is aware that advisors also have their 

own priorities. 

Recommendations 

• Don’t embark on a collaborative effort with 

preconceived solutions; be aware that give 

and take are needed in order to reach a sustainable 

solution. 

• Recognize the dynamic change indigenous 

cultures are undergoing; outside organizations 

seeking to partner with them need to 

respect and support, as appropriate, their 

efforts toward self-determination and 

socioeconomic development. 

• Make a long-term commitment to dialogue 

and partnership. 

• Make sure that communication is two-way; 

be clear, transparent, consistent, and honest 

in communicating with partners. 

• Secure the agreement of all partners 

regarding who will facilitate the collaborative 

process. 

1.2 Strengthening Indigenous Institutions 

for Collaboration 

In order to manage their resources effectively and 

interact equitably with other stakeholders, indigenous 

groups need institutions that are able to 

identify and articulate their priorities. To 

advance their agendas, indigenous groups have in 

recent years formed a variety of organizations 

including community-level associations and 

regional and national federations. The form that 

these institutions take is often influenced by outsiders 

who promote the democratic structures and 

procedures, such as representatives and elections, 

with which they are most familiar. As discussed 

in the Namibia case, this can result “in the exclusion 

of subgroups within the community, particularly 

women and elders, and a takeover of 

decision making by [young] elites.” New project 

staff subsequently facilitated a process in which 

the community used traditional values to forge 

their own unique institutional structures and 

means of communication. 

Before becoming involved in modifying old or 

establishing new institutional structures, conservation 

organizations need to understand the culture, 

subgroups within the community, and traditional 

decision-making processes. What works will often 

be a blend of new and old decision-making mechanisms 

that both builds on traditional practices and


adapts to current realities. In the case of Papua 

New Guinea, clan groups that are the traditional 

decision-making structures and recently formed 

Wildlife Management Area Committees both 

played a role in the fish-monitoring effort. In 

Namibia, the first three years of the project were 

devoted largely to institution building. 

How they represent themselves to outsiders is an 

issue that traditional cultures increasingly need to 

address. In many of the groups featured in the case 

studies, individuals do not have the authority to 

represent the group. The Ju/’hoan in Namibia say 

“each one of us is a headman over himself.” In 

many indigenous communities, young, educated, 

and articulate men are beginning to promote themselves 

as community spokesmen, playing the role 

of what one author calls a “culture broker”—a person 

who can interact in both the traditional and the 

modern worlds. Outside organizations are 

attracted to this type of leader since they find it 

easier to communicate with one individual who 

speaks the language of modernity. As was the case 

in Namibia and Brazil, culture brokers can pose 

problems if they lose touch with the community 

and forfeit its trust. 

In several of the cases, as decision-making 

processes became more formalized, certain sectors 

of the community were excluded. The exclusion 

of women proved to be a crucial omission 

since women are often involved in subsistence 

activities and have knowledge key to natural 

resource management. In Papua New Guinea and 

Brazil, separate meetings were held with women 

in an attempt to bring their perspectives into the 

planning process. In Namibia, institutions and 

leadership structures were adapted through a 

process of participatory research to make them 

more responsive to all sectors of the community. 

Federations of indigenous organizations played 

central roles in all of the Latin America cases, 

particularly in getting indigenous concerns on 

the national agenda, lobbying for laws and policies 

to expand indigenous rights, and obtaining 

donor funding. Yet they are having difficulty 

moving beyond public advocacy to the effective 

provision of services, including efforts to help 

member communities design and implement 

income-generating projects based on renewable 

resources. The lessons that apply to building 

capacity with local associations and communities 

also need to be applied at the federation 

level if ecoegion conservation is to be achieved. 

Federations in Ecuador, for instance, have formulated 

proposals for comanagement of protected 

areas, but they still need to demonstrate 

the skills that are required to put the idea into 

action. The state is much more likely to regard 

them as a partner if it believes they can pull their 

own weight. NGOs and donors can play an 

important role in encouraging the state to experiment 

with such partnerships and can provide 

technical assistance to help participants make 

them work, as was the case in Namibia. 


• Take time to understand traditional decisionmaking 

structures and processes before 

modifying or establishing institutions. 

• Recognize that forming new organizations 

takes a lot of time, effort, and resources, 

and that communities need the time and 

space to develop or modify their own 

organizations. 

• Verify that representatives of community 

groups truly represent the range of community 

views; be aware of the pitfalls of 

working through “culture brokers” or an 

educated elite. 

• Find appropriate ways to involve disenfranchised 

groups, such as women, in natural 

resource planning and management. 

• Examine the strengths and weaknesses of 

federations of indigenous groups as partners 

in large-scale conservation efforts, 

such as ecoregion-based conservation. 

1.3 Sharing Knowledge about Natural 

Resources 

Enhancing mutual understanding and information 

sharing between Western scientists and indigenous 

people about natural resources and ecological 

processes produces better conservation plans, 

as exemplified in several of the cases. The 

authors suggest that two types of indigenous 

knowledge are important for conservation. One 

type is practical and includes information about 

day-to-day resource use that can help in the 

development of resource management plans. The 

other is broader and encompasses a culture’s


views of the relationship between people and 

nature. This information is important to understand 

when talking to communities about conservation 

goals. 

Traditional knowledge is dynamic, not static as is 

often assumed. It is modified over time as communities 

interact with the external environment. 

But it is also eroding rapidly around the world, 

becoming stories rather than methodology—a 

trend which will be a great loss for peoples’ cultural 

integrity, and for conservation. Recognition 

of the importance of traditional knowledge is not 

only important to natural resource planning; 

recovering this knowledge reinforces cultural 

pride, helps communities understand how 

changes in their lifestyle are affecting the 

resource base, and mobilizes participation to 

implement remedies. 

Resource management planning is much more 

effective if there is a two-way exchange of information 

between biologists and indigenous groups 

about natural resources and their use. Local people 

have detailed knowledge about species that 

are important to them, but often a more limited 

understanding of the overall characteristics of the 

wider ecosystem and how resource use affects it. 

To benefit from each other’s knowledge, these 

two groups need to find more effective ways of 

communicating and understanding one another. 

The Xavante project in Brazil was among the 

first attempts to integrate hunters’ and biologists’ 

understandings of game management. In Papua 

New Guinea, scientists used traditional taxonomy 

to refine their own analyses and record the existence 

of two new species. The Brazil and 

Namibia cases show that by working with indigenous 

groups to develop management plans, 

Western scientists found indigenous knowledge 

useful in the establishment of wildlife refuge 

areas. An approach that worked in several cases 

was for biologists to develop resource management 

options (based on joint data collection) 

from which the community made the final selection. 

And because this process is grounded in 

dialogue, the plan that is selected incorporates 

procedures that allow for corrections as future 

circumstances dictate. 


• Invest more in understanding and incorporating 

indigenous knowledge and world 

views into conservation planning. 

• Promote greater understanding and information 

exchange between modern scientists 

and indigenous peoples. Use joint 

data collection and analysis, especially 

mapping, as a tool for building skills and 

for discussing natural resource management 

issues and priorities. 

1.4 Establishing Appropriate Project 

Processes 

The process or approach employed by a project 

can either create dependence on the donor or partner 

or build the community’s capacity and motivation 

to sustain the activity. A key issue in 

determining which outcome prevails is the project’s 

time frame and pace. Activities should be 

planned and implemented based on the community’s 

ability to participate, so that local resources 

can be mobilized and local people can take 

responsibility and credit for outcomes. For example, 

community decision making is often based 

on consensus, which takes time to generate. 

Spending time up front to build community skills 

and institutions also builds a foundation for sustainability. 

Short-term funding cycles and rigid 

project time frames do not give the community 

enough time to assess resource management 

issues, gather needed information, and generate 

and discuss options. 

Enabling the community to play a greater role 

in project implementation in areas like staffing 

will also increase their “ownership” of and ability 

to manage project activities. For example, in 

the Xavante project the community and the conservation 

organization jointly developed a list of 

three candidates for a game monitoring position, 

from which the community selected the finalist. 

In Namibia, the project provided funds for a 

biologist who was identified and managed by 

the community. 

Policies that expand local control over resource 

decision making are another important way to 

empower indigenous communities. In Namibia, 

the passage of the conservancy law, which WWF 

actively supported, helps the Ju/’hoan reinforce 

their borders and control incursions. This, in


turn, provides the security the community needs 

to invest in resource management. In Bolivia, a 

newly enacted forest law is positive in that it recognizes 

local communities’ role in natural 

resource management. However, some of its 

requirements, such as the stipulation that communities 

produce resource management plans 

endorsed by forest professionals, price local people 

out of the process and can bring community 

action to a standstill. Both cases show that 

policy issues do not stop with the drafting and 

passing of legislation but extend to engaging the 

administrative agencies charged with drawing up 

rules and procedures for implementation. 

A project’s scale of effort can also affect its sustainability. 

In general, the case studies showed 

that the most successful efforts were those that 

had relatively small budgets and were carried out 

over a relatively long period of time. Too big an 

infusion of outside resources and the introduction 

of complex technologies can overwhelm local 

accountability and result in overdependence on 

outside institutions. In Ecuador, collaboration 

among three communities on a timber processing 

enterprise was found to be both socially and 

technologically unsustainable. The fruit-processing 

effort that paralleled the wildlife management 

project in Brazil also suffered from the same 

drawbacks. In assessing the impact of this lesson 

on efforts to conserve resources at larger scales, 

one should not preclude the possibility of scaling 

up community-level conservation efforts. Such 

efforts, however, should be tested at smaller 

scales, carefully planned to ensure they are 

socially sound, and proceed at a pace that participants 

can handle. 


• Ensure that community decision-making 

processes, the pace at which participants 

are prepared to proceed, and the need for 

capacity building are factored into project 

design and implementation. 

• Encourage donors to support more flexible 

project designs with longer time frames 

that can be adjusted midstream to respond 

to what is being learned. 

• Promote national policies that expand community 

control over natural resource stewardship 

and lobby for adequate funding to 

move policy from the drawing board to 

actual implementation. 

• Find ways to replicate successful smallscale 

efforts. 

II. Toward Building Conservation 

Partnerships with Indigenous 

Peoples 

WWF and other conservation organizations have 

recognized for some time that they need to work 

more effectively with a diverse range of stakeholders, 

including indigenous peoples, if conservation 

goals are to be achieved. Discussions at 

the 1998 workshop moved beyond what was 

involved in successful local projects to throw a 

spotlight on the potential for indigenous groups 

to be fully engaged as long-term conservation 

partners. It heightened awareness of indigenous 

peoples as important and unique conservation 

stakeholders, and generated recommendations for 

improving collaborative efforts with them. 

Regardless of the scale of the effort, successful 

collaboration between conservation organizations 

and indigenous peoples requires a foundation of 

mutual understanding and respect; a well-facilitated 

process of dialogue and negotiation; greater 

capacity built through acquisition of new skills 

and the creation of effective institutions; and a 

favorable policy environment. It is in these areas 

that conservation organizations need to make a 

significant investment. 

Drawing on the recommendations outlined 

above, and the principles of stakeholder collaboration 

that they represent, WWF’s work on 

indigenous issues moved forward on a number of 

new fronts in 1999: 

• In the Bering Sea ecoregion, covering portions 

of the United States and Russia, 

WWF and its partners have recognized 

indigenous peoples as key stakeholders. 

As a result, input from indigenous peoples 

is actively sought on the threats, problems, 

and conservation needs of the area. 

Activities carried out during the past two 

years included 1) support for a major 

native peoples’ summit that brought


together approximately 300 indigenous 

people to discuss conservation and the 

health of the Bering Sea; 2) the participation 

of native partners in press briefings to 

inform the public about issues affecting the 

region; and 3) the funding of a study of traditional 

resource use and a socio-ecological 

survey of local views on conservation and 

marine resources in order to gauge interest 

in establishing a marine protected area that 

would include subsistence activities. 

• In the southwest Amazon ecoregion, WWF 

and its partners have been actively involved 

in engaging stakeholders and determining 

conservation priorities. In the Bolivia portion 

of the ecoregion, for example, WWF 

and other groups have begun to identify 

areas of significant biological importance, 

and in those areas to communicate with 

indigenous groups about exploring common 

interests. While much more information 

and consultation is needed, possible 

joint activities include biological inventories, 

the development of wildlife management 

plans, community-based wildlife 

monitoring, and the creation of a private 

protected area. Indigenous groups will 

also be an integral part of broad-based 

stakeholder dialogue and decision making 

in the ecoregion. 

• The framework policy on indigenous peoples 

and protected areas on which WWF collaborated 

with the World Commission on 

Protected Areas (WCPA) was endorsed by 

the IUCN Council in April 1999 and the 

WWF network in May 1999. This is now 

the official IUCN/WWF/WCPA position on 

protected areas that overlap with the lands, 

territories, waters, coastal seas, and other 

resources of indigenous and other traditional 

peoples. The policy provides guidelines for 

forging sustainable partnerships with the people 

who have been the traditional guardians 

of a large number of the world’s biodiversityrich 

habitats before they became protected 

areas. Despite its limitations, the document 

represents considerable progress and will 

open more opportunities for collaboration 

with indigenous and traditional peoples to 

ensure the long-term survival of those areas. 

• Capacity building for stakeholder collaboration 

is a WWF priority. Significant 

investments are being made to adapt what 

has been learned in prior fieldwork, 

develop new tools, and test them in pilot 

efforts that bring stakeholders together to 

resolve conflicts and forge coalitions that 

further conservation goals. Working with 

indigenous groups will be an important 

part of this effort. 

• New developments have taken place in several 

of the projects reviewed in the case 

studies. In Papua New Guinea, the fisheries 

management plan is being implemented and 

resources are being managed more sustainably. 

Income is being generated through a 

variety of community-run enterprises in 

Namibia. In Brazil, the resource management 

plan is being returned to the community 

via a manual and audiotapes in the 

Xavante language. 

A common sense of urgency has made conservation 

organizations and indigenous peoples 

increasingly aware of one another and multiplied 

the opportunities for collaboration. The possibilities 

are limited largely by the willingness to look 

for them. While their aims and approaches are 

not identical, nearly a decade of experience shows 

that when both groups are willing to listen to one 

another and be flexible when searching for common 

ground, both will make progress toward realizing 

their goals. Effective partnerships are being 

forged from an awareness that the land and its 

natural resources cannot be protected unless all its 

stewards learn to work together.

Contributors 

JOHN BUTLER holds a Ph.D. in Anthropology 

from the University of Florida. He has worked 

for more than 16 years in community-based natural 

resource management in Latin America, and 

specialized in the Amazon Basin with a particular 

focus on indigenous communities. Since 1990, 

he has worked with the WWF-Latin America 

program in Brazil, Peru, Bolivia, Argentina, and 

Chile. While based in Brazil, he worked to 

develop natural resource management projects 

with several indigenous communities in the 

Brazilian Amazon and Cerrado. 

LAURA R. GRAHAM is associate professor in 

the Department of Anthropology of the 

University of Iowa. Her extensive fieldwork 

since 1981 in the community of Etéñiritipa, 

Brazil, formed the basis for numerous articles 

and the book Performing Dreams: Discourses of 

Immortality among the Xavante. 

DOMINIQUE IRVINE is consulting assistant 

professor in Anthropological Sciences at Stanford 

University. She holds a master’s degree in 

forestry and environmental studies from Yale 

University and a Ph.D. in ecological anthropology 

from Stanford University. During the past 

20 years she has worked with various indigenous 

federations in Ecuador’s Napo Province on issues 

of land rights, organizational strengthening, 

resource management, and marketing. She collaborated 

with FCUNAE on a postdoctoral fellowship 

from the Smithsonian Institution, and 

later with FOIN when she was Indigenous 

Resource Management Program director with 

Cultural Survival from 1989 to 1995. She 

worked as an advisor to the PUMAREN Project 

from its inception. 

PATTY LARSON was with the World Wildlife 

Fund’s People and Conservation Program from 

1991 to 1998 and coordinated the indigenous peoples 

initiative. Now an independent consultant on 

sustainable development and environment issues, 

she holds a master’s degree in international affairs 

from American University in Washington, D.C. 

JOE REGIS is the community outreach program 

coordinator of the Kikori Integrated Conservation 

and Development Project. He holds a master’s 

degree in personnel management, industrial relations, 

and labour welfare from Loyola College, 

Madras University, India, and has worked as a 

community development trainer and promoter 

with NGOs and church groups in various parts of 

Asia and Europe during the past 15 years. 

WENDY R. TOWNSEND holds a Ph.D. in forest 

resources and conservation, with a major in 

wildlife management and a minor in anthropology, 

from the University of Florida. She is coordinator 

of CIDOB’s Indigenous Management 

Research Project in Bolivia.

148 Contributors 

RON WEBER is a free-lance writer and editor 

based in Washington, D.C. He was the editor of 

Grassroots Development, the journal of the Inter- 

American Foundation, from 1991 to 1994, and a 

contributing editor from 1981 to 1991. 

BARBARA WYCKOFF-BAIRD holds a master’s 

degree in anthropology from American 

University in Washington, D.C. She has worked 

for more than 16 years in rural development and 

community-based natural resource management 

in Africa and elsewhere. Now an independent 

consultant and senior associate of the Aspen 

Institute, she was the LIFE Program technical 

advisor to the Nyae Nyae Farmers Cooperative 

from 1994 to 1996. 

Photography 

Cover (upper left), Kate Newman; cover (upper right), Laura R. Graham; cover (lower left), Dominique 

Irvine; cover (lower right), Bija Sass and Paul Smotherman; page 21, William H. Durham; page 47, 

Laura R. Graham; page 73, Giandomenico Tono; page 91, Bija Sass and Paul Smotherman; page 113, 

Kate Newman. 

The graphic design bar at the page heads is from Adobe Illustrator Deluxe software.

Indigenous Peoples and Conservation: 

WWF Statement of Principles 

A WWF International 

Position Paper 

Annex 

Contents 

Foreword 

Preamble 

I. Rights and Interests of Indigenous Peoples 

II. Conservation Objectives 

III. Principles of Partnership 

Foreword 

Indigenous peoples inhabit nearly 20 per cent of the planet, mainly in areas where they 

have lived for thousands of years. Compared with protected area managers, who control 

about 6 per cent of the world’s land mass, indigenous peoples are the earth’s most 

important stewards. 

During more than three decades of conservation work, WWF has been approached by 

many indigenous and rural communities seeking collaboration on issues like protected area 

management and the conservation of natural resources. Notable amongst them are the 

Hupa Indians of northern California, the Inuit of Isabella Bay in Canada, the Zoque Indians 

of Mexico, the Karen of Thailand, the Shona people in Zimbabwe, the Kuna of Panama, 

the Shimshali of Pakistan, the Phoka people of northern Malawi, the Imagruen of 

Mauritania, the Ewenk of Siberia, and many others scattered all over the globe. WWF is, 

or has recently been, working with indigenous peoples in all regions of the world: in 

Europe, Latin America, North America, Asia, the Pacific, and Africa. 

WWF’s views on the relationship between indigenous peoples and modern conservation 

have been touched upon in several of our recent publications. As a result of its central role 

in discussing indigenous peoples issues at the IV World Congress on National Parks and

150 Annex 

Protected Areas, WWF published the book The Law of the Mother, edited by Elizabeth 

Kemf, which collects and analyses experiences at the interface between indigenous peoples 

and conservation, including several project sites where WWF has been involved. In 

publications like Conservation with People and Forests For Life, WWF has expressed its 

conviction that indigenous peoples are crucial actors in conservation. Together with IUCN 

and UNEP, in Caring for the Earth WWF acknowledged the need for recognition “of the 

aboriginal rights of indigenous peoples to their lands and resources ... and to participate 

effectively in decisions affecting their lands and resources”. 

Despite this history, the statement which follows represents WWF’s first attempt to 

enunciate a broad policy to guide its work. It has been prepared following extensive consultation 

throughout the WWF network, which has an institutional presence in more than 

50 countries. Building consensus on an emotive and politically sensitive topic is far from 

easy; moreover, there is a great diversity of national and regional situations in countries 

where WWF is active. The statement is our current best effort, but there may remain certain 

issues on which full consensus has still to be built. The interpretation and application 

of the statement may thus need to be adapted according to each national context. 

These variations must be interpreted as an expression of the diversity of circumstances 

within and outside the organization. From time to time, as WWF learns more about the 

topic, the statement may be updated to incorporate new views or perspectives. 

Over the coming months, WWF will be preparing guidelines to assist its Programme 

staff in their work as it relates to the statement. As always, the implementation of such 

guidelines will be determined by the twin constraints of personnel and funds. 

We believe the statement is a far-sighted step for an international organization whose 

mission is the conservation of nature, but we also recognize it may not be perfect to all 

eyes. Therefore, we would be pleased to receive comment and criticism from readers 

of this statement, to enable us to continue to improve our approach and contribution in 

this field. 

Dr Claude Martin 

Director General 

Dr Chris Hails 

Programme Director 

Gland, Switzerland 

22 May 1996

Annex 151 

Indigenous Peoples 1 and Conservation: 

WWF Statement of Principles 

Principles for partnership between WWF and indigenous peoples’ organizations in conserving biodiversity 

within indigenous peoples’ lands and territories, and in promoting sustainable use of natural resources 

Preamble 

1. Most of the remaining significant areas of high natural value on earth are inhabited by indigenous 

peoples. This testifies to the efficacy of indigenous resource management systems. Indigenous peoples 

and conservation organizations should be natural allies in the struggle to conserve both a healthy 

natural world and healthy human societies. Regrettably, the goals of conserving biodiversity and protecting 

and securing indigenous cultures and livelihoods have sometimes been perceived as contradictory 

rather than mutually reinforcing. 

2. The principles for partnership outlined in this statement arise from WWF’s mission to conserve biodiversity, 

combined with a recognition that indigenous peoples have been often stewards and protectors 

of nature. Their knowledge, social, and livelihood systems - their cultures - are closely attuned to the 

natural laws operating in local ecosystems. Unfortunately, such nature-attuned cultures have become 

highly vulnerable to destructive forces related to unsustainable use of resources, population expansion, 

and the global economy. 

3. WWF recognizes that industrialized societies bear a heavy responsibility for the creation of these 

destructive forces. WWF believes that environmental and other non-governmental organizations, together 

with other institutions worldwide, should adopt strategies with indigenous peoples, both to correct the 

national and international political, economic, social, and legal imbalances giving rise to these destructive 

forces, and to address their local effects. The following principles aim to provide guidance in formulating 

and implementing such strategies. 

I. Rights and Interests of Indigenous Peoples 

4. WWF acknowledges that, without recognition of the rights of indigenous peoples, no constructive 

agreements can be drawn up between conservation organizations and indigenous peoples groups. 

5. Since indigenous peoples are often discriminated against and politically marginalized, WWF is commited 

to make special efforts to respect, protect, and comply with their basic human rights and customary 

as well as resource rights, in the context of conservation initiatives. This includes, but is not 

limited to, those set out in national and international law, and in other international instruments. 

In particular, WWF fully endorses the provisions about indigenous peoples contained in the following 

international instruments: 

• Agenda 21 

• Convention on Biological Diversity 

• ILO Convention 169 (Convention Concerning Indigenous and Tribal Peoples in Independent 

Countries) 2 

• Draft UN Declaration on the Rights of Indigenous Peoples 3 

6. WWF appreciates the enormous contributions indigenous peoples have made to the maintenance of 

many of the earth’s most fragile ecosystems. It recognizes the importance of indigenous resource 

rights and knowledge for the conservation of these areas in the future. 

7. WWF recognizes indigenous peoples as rightful architects of and partners for conservation and 

development strategies that affect their territories.

152 Annex 

8. WWF recognizes that indigenous peoples have the rights to the lands, territories, and resources that 

they have traditionally owned or otherwise occupied or used, and that those rights must be recognized 

and effectively protected, as laid out in the ILO Convention 169. 

9. WWF recognizes the right of indigenous peoples to exert control over their lands, territories, and 

resources, and establish on them the management and governance systems that best suit their cultures 

and social needs, whilst respecting national sovereignty and conforming to national conservation and 

development objectives. 

10. WWF recognizes, respects, and promotes the collective rights of indigenous peoples to maintain and 

enjoy their cultural and intellectual heritage. 

11. Consistent with Article 7 of the ILO Convention 169, WWF recognizes indigenous peoples’ right to 

decide on issues such as technologies and management systems to be used on their lands, and supports 

their application insofar as they are environmentally sustainable and contribute to the conservation 

of nature. 

12. WWF recognizes that indigenous peoples have the right to determine priorities and strategies for the 

development or use of their lands, territories, and other resources, including the right to require that 

States obtain their free and informed consent prior to the approval of any project affecting those 

lands, territories, and resources. 

13. WWF recognizes and supports the rights of indigenous peoples to improve the quality of their lives, 

and to benefit directly and equitably from the conservation and sustainable use of natural resources 

within their territories. 

14. In instances where multiple local groups claim rights to resources in indigenous territories, WWF recognizes 

the primary rights of indigenous peoples based on historical claims and long-term presence, 

with due regard for the rights and welfare of other legitimate stakeholders. 

15. WWF respects the rights of indigenous peoples to enjoy an equitable share in any economic or other 

benefits realized from their intellectual property and traditional knowledge, building on the provisions 

of the Convention on Biological Diversity. 

16. In conformity with the provisions of the ILO Convention 169, WWF recognizes the right of indigenous 

peoples not to be removed from the territories they occupy. Where their relocation is considered 

necessary as an exceptional measure, it shall take place only with their free, prior informed consent. 

II. Conservation Objectives 

17. At the heart of WWF’s work is the belief that the earth’s natural systems, resources, and life forms 

should be conserved for their intrinsic value and for the benefit of future generations. 

WWF bases all of its conservation work on the principles contained in its Mission statement. 

In addition, WWF fully endorses the provisions about biodiversity conservation and sustainable 

development contained in the following documents: 

• Agenda 21 

• Convention on Biological Diversity 

• Convention on Trade in Endangered Species of Flora and Fauna (CITES) 

• Convention on Wetlands of International Importance (Ramsar Convention) 

• Caring for the Earth 

18. WWF encourages and supports ecologically sound development activities, particularly those that link 

conservation and human needs. WWF may choose not to support, and may actively oppose, activities it 

judges unsustainable from the standpoint of species or ecosystems, or which are inconsistent with 

WWF policies on endangered or threatened species or with international agreements protecting wildlife 

and other natural resources, even if those activities are carried out by indigenous communities.

Annex 153 

19. WWF seeks out partnerships with local communities, grass roots groups, non-governmental organizations, 

governments, corporations, international funding institutions, and other groups, including 

indigenous communities and indigenous peoples’ organizations, who share WWF’s commitment to 

the following conservation objectives: 

i) Conservation of biodiversity: to conserve biological diversity at the genetic, species, and 

ecosystem levels; to improve knowledge and understanding of species and ecosystems; to protect 

endangered species of animals and plants; to maintain ecosystem functions; to maintain 

protected areas and improve their management. 

ii) Sustainable use of resources: to ensure that any harvest of natural resources is sustainable; to 

support community management of renewable resources according to subsistence and cultural 

needs; to use recycling methods where appropriate; to use resource-efficient methods and technologies; 

and to substitute non-renewable with renewable resources wherever possible. 

iii) Pollution prevention: to prevent, wherever possible, discharges of environmentally damaging 

substances, and ensure that products and processes are non-polluting. 

III.Principles of Partnership 

20. The following principles will govern: (i) WWF conservation activities within indigenous peoples’ 

lands and territories; (ii) WWF partnerships with indigenous peoples’ organizations; (iii) WWF partnerships 

with other organizations whose activities may impact upon indigenous peoples. 

21. Whenever it promotes conservation objectives, and in the context of its involvement in conservation 

activities affecting indigenous peoples’ lands and territories, WWF will encourage governments to “take 

steps as necessary ... to guarantee effective protection of [indigenous peoples’] rights of ownership and 

possession” of those lands and territories, as determined by the ILO Convention 169 (Art. 14). 

22. Prior to initiating conservation activities in an area, WWF will exercise due diligence to: 

• seek out information about the historic claims and current exercise of customary rights of indigenous 

peoples in that area; and 

• inform itself about relevant constitutional provisions, legislation, and administrative practices 

affecting such rights and claims in the national context. 

23. When WWF conservation activities impinge on areas where historic claims and/or current exercise of 

customary resource rights of indigenous peoples are present, WWF will assume an obligation to: 

• identify, seek out, and consult with legitimate representatives of relevant indigenous peoples’ 

organizations at the earliest stages of programme development; and 

• provide fora for consultation between WWF and affected peoples, so that information can be 

shared on an ongoing basis, and problems, grievances, and disputes related to the partnership can 

be resolved in a timely manner. 

In addition, consistent with the relevance and significance of the proposed activities to the achievement 

of conservation objectives, WWF will be ready to: 

• assist indigenous peoples’ organizations in the design, implementation, monitoring, and evaluation 

of conservation activities, and to invest in strengthening such organizations and in developing relevant 

human resources in the respective indigenous communities; 

• assist them in gaining access to other sources of technical and financial support to advance those 

development objectives that fall outside WWF’s mission. 

24. In instances where states or other stakeholders, including long-term residents, contest the rights of 

indigenous peoples, WWF will be ready to assist indigenous peoples to protect, through legally 

accepted mechanisms, their natural resource base, consistent with the achievement of WWF’s 

Mission and subject to availability of resources.

154 Annex 

25. Where the resource rights of indigenous peoples are challenged by national governments, private corporations, 

and/or other groups, and the defence of those rights are deemed relevant and significant to 

the achievement of its Mission, WWF will, in coordination and consultation with indigenous peoples’ 

organizations and subject to availability of resources: 

• seek out and/or invest in the development of legitimate and transparent mechanisms to resolve conflicts 

at local, regional, national, and international levels, as appropriate; 

• seek to ensure that the primary rights and interests of indigenous peoples are well represented in 

such fora, including investment to inform and prepare indigenous peoples’ representatives to take 

part in negotiations. 

26. Consistent with WWF conservation priorities, WWF will promote and advocate for the implementation 

of Article 7 of the ILO Convention 169: “Governments shall take measures, in co-operation 

with the peoples concerned, to protect and preserve the environment of the territories they inhabit”. 

27. WWF will not promote or support, and may actively oppose, interventions which have not received 

the prior free and informed consent of affected indigenous communities, and/or would adversely 

impact - directly or indirectly - on the environment of indigenous peoples’ territories, and/or would 

affect their rights. This includes activities such as: 

• economic or other development activities; 

• natural resources exploitation; 

• commercially oriented or academic research; 

• resettlement of indigenous communities; 

• creation of protected areas or imposition of restrictions on subsistence resource use; 

• colonization within indigenous territories. 

28. With respect to the existing knowledge of indigenous communities, prior to starting work in a particular 

area, WWF will establish agreements with the indigenous organizations representing local 

communities, to ensure that they are able to fully participate in decisions about the use of knowledge 

acquired in or about the area they inhabit, and equitably benefit from it. These agreements will 

explicitly determine the ways and conditions under which WWF will be allowed to use such knowledge. 

29. In the context of its partnerships with organizations other than those specifically representing the 

interests of indigenous peoples (including national governments, donor agencies, private corporations, 

and non-governmental organizations), WWF will: 

• ensure that such partnerships do not undermine, and if possible serve to actively promote, the basic 

human rights and customary resource rights of indigenous peoples; 

• ensure that all relevant information developed through such partnerships and accessible to WWF, is 

shared with the appropriate representatives of indigenous peoples; 

• ensure that any national or international advocacy or fundraising activity related to indigenous peoples 

will be undertaken in consultation with representatives of relevant indigenous peoples’ organizations. 

30. WWF recognizes that the resolution of problems related to indigenous peoples may require action 

in international fora, in addition to national interventions. In pursuit of the foregoing principles, 

and in order to enhance its own understanding of indigenous peoples’ issues, and when consistent 

and relevant to its conservation objectives, WWF will: 

• actively seek inclusion and engagement in relevant international, as well as national fora. 

• initiate an ongoing process of dialogue with indigenous peoples’ groups on the principles for partnership 

proposed herein.

Annex 155 

31. WWF commits itself to promoting nationally and internationally, whenever possible and appropriate, 

the implementation of all of these principles in the context of conservation actions within indigenous 

peoples’ lands and territories. 

32. WWF is committed to upholding the above principles, and the spirit that informs them, to the best of 

its abilities.

156 Annex 

Notes 

1. In this position statement, as well as in other 

institutional documents, WWF refers to indigenous 

and tribal peoples using the definition of the 

ILO Convention 169. Unless explicitly said otherwise, 

the term “indigenous peoples” includes 

both concepts, “indigenous” and “tribal”. 

2. Adopted by the General Conference of the 

International Labour Organization on 27 June 

1989. 

3. As adopted by the Working Group on 

Indigenous Populations of the Sub-Commission 

on Prevention of Discrimination and Protection 

of Minorities of the UN Commission on Human 

Rights, at its eleventh session (UN document 

E/CN.4/Sub.2/1993/29, Annex I). 

For more information contact: 

Gonzalo Oviedo 

Head, People & Conservation Unit 

WWF International 

Avenue du Mont-Blanc 

1196-Gland 

Switzerland 

Tel: + 41 22 364 9542 

Fax: +41 22 364 5829 

World Wildlife Fund 

1250 24th Street, N.W. 

Washington, D.C. 20037 

www.worldwildlife.org

Indigenous Peoples and Conservation Organizations

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