Policy on Social Equity in Conservation and Sustainable Use of Natural Resources Adopted by IUCN Council Meeting, February 2000

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1 Policy on Social Equity in Conservation and Sustainable Use of Natural Resources Adopted by IUCN Council Meeting, February 2000 A note on the Policy Statement This policy statement aims to outline a set of fundamental tenets, which can act as an overarching Social Policy for IUCN. This document aims to develop coherent guiding principles that may be applied across the Union. It can, and should not, claim to address the many and wide-ranging site-specific issues, which inevitably reflect the complexity of social dimensions of environmental management. The document therefore approaches social aspects of conservation through a global lens rather than local specificity. It is not meant to prescribe ways to carry out practical actions. For this reason, and responding to the strong demand for practical action and guidelines to implement this policy statement formulated by regional members, an Action Plan has been developed to translate the policy statement into action. This Action Plan relies on the collaboration of members, commissions and the secretariat to develop and implement regional and national plans. Introduction This document builds on the IUCN Mission and existing policies, in particular The World Conservation Strategy (1980), Caring for the Earth (1992) and World Conservation Congress Resolutions. They clearly expand the notion of conservation to include equitable and sustainable use of natural resources and to address the need for equitable sharing of the costs and benefits of conservation. It also draws on various global conferences and declarations 1, which provide the overarching framework for activities carried out by IUCN partners, members and the secretariat. To become a significant player on the international scene, IUCN as an institution has to strengthen its technical expertise, views and advice incorporating social equity in socioenvironmental concerns. In summary, this statement calls for the integration and promotion of social equity as a fundamental condition for sustainable conservation and natural resource use. It recognises social and economic factors that affect natural resource use and biological diversity, and the important linkages between human well-being and healthy ecosystems. It presents the goal of social equity in the context of IUCN s overall mission and briefly provides a conceptualisation of its rationale, and its implications for our efforts to conserve the integrity and diversity of nature. Furthermore, it calls for an effective and coherent strategy to ensure that conservation does not accentuate or perpetuate existing social, economic and cultural inequities and inequalities. Why Social Equity in Conservation The IUCN Mission is to influence, encourage and assist societies throughout the world to conserve the integrity and diversity of nature and to ensure that any use of natural resources is equitable and ecologically sustainable. The Mission highlights IUCN s commitment to promote social equity in conservation and natural resource management, within a vision that embraces sustainable development and human well-being, as well as the maintenance and restoration of the integrity and diversity of nature. The rationale rests on the recognition that social equity is not only a matter of basic human rights, but also a way to increase the efficiency and sustainability of our institutional efforts. Conservation and use of natural resources are social processes par excellence since they rely on people's behaviour, values and decisions. Human individuals relate to nature through social relations established with others, which in turn shapes their perceptions, values, knowledge, power, opportunities and decisions. The success of our work depends on people's behaviour and decisions, and it can be judged by the degree to which it contributes to the well-being of people and their environment. The need to promote sustainable livelihoods at the local and global level demands that IUCN supports sustainable development as an alternative model to current development models, which mainly focus on economic growth to ensure increasing profits for a minority of world population. I.e. The Convention on Biological Diversity (CBD), the Ramsar Convention, the Convention to Combat Desertification, UNCED, Rio de Janeiro, 1992; the International Conference on Population and Development, Cairo, 1994; the Social Summit, Copenhagen, 1995; and the Fourth World Conference on Women, Beijing, Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 1

2 There are several social, cultural and economic structures shaping human behaviour such as gender, economic status, ethnicity, race, culture and age. In addition, markets and mechanisms of economic development create differences between developed and developing countries, making inter and intra-national differences sharper. There are complex social dynamics affecting different stakeholders, shaping their specific interactions with natural resources and their specific, and usually conflicting, interests. There is a need to open dialogue and negotiation among different stakeholders within global, regional, national and local contexts, in order to achieve more equitable sharing of the costs and benefits of conservation. Policy issues at the national and global level, such as international trade agreements, global conventions and treaties, shape decisions affecting the use of natural resources and ecosystems, and therefore affect social stability and human security. There is a need for environmental laws, regulations, policies and practices that contribute to more equitable sharing of the cost and benefits of conservation, and more even distribution of entitlements of natural resources. There is a need to build capacity at the local and national level to support democratic participation of local people within policy development, in order to reach more equitable power sharing between poor and rich countries. IUCN has to influence global processes that support more equitable power sharing, sustainable human development and sustainable use of natural resources (e.g., trade agreements, financial mechanisms and economic incentives). This ambitious and urgent task can be only accomplished if the Union becomes a more effective institution, making better use of their current resources, experience and expertise. Increasing communication and collaboration among its members, commissions and secretariats can create the necessary synergy to expand its results and reach. A broad institutional social learning has to be facilitated to allow the collective thinking of local experiences within global perspectives, and more horizontal sharing of experiences and expertise, resources and decision making. The concept of social equity in conservation refers to the need for fair distribution of the benefits and costs of conservation among different social groups and individuals. It recognises that social groups and individuals have differential needs, interests, rights to and responsibilities over resources, and that they experience different impacts of conservation and development interventions. Unless special provisions are made to balance differences in tenure, power, knowledge and decisions, conservation and sustainable use initiatives are going to perpetuate and sharpen social and economic differentiation. By doing so, they would fail to build a solid social base for sustainability and socio-environmental security. Broad participation of stakeholders without gender, class, age, ethnicity, religion, culture or racial discrimination is required within natural resources management and in policy development, in order to ensure their integrity and human development. Social equity is not only the keystone of long-term social stability and security, which are essential aspects of human welfare and sustainable development, but it is also a fundamental condition for sustainable use of natural resources. IUCN understands that to be able to design effective programs that promote sustainable and equitable conservation and natural resources use, it has to fully embrace socioeconomic and cultural equity concerns in its policies, programs and projects at the local, national, regional and global level. Within IUCN's mission six major areas have been identified, in which issues of social equity need to be explicitly addressed: 1. Social Diversity and Equity 2. Gender and Equity 3. Tenure and Participatory Management 4. Indigenous and Traditional Peoples 5. Security and Equity 6. Poverty Social Diversity and Equity IUCN is composed of a varied set of stakeholders - from small NGOs to national governments - and is further committed to work with all stakeholders in conservation processes. The various sets of stakeholders involved in any particular conservation initiative possess different rights, responsibilities, interests and opportunities for decision-making and involvement. They also bring with them different perceptions and approaches for defining and solving problems. This fact in turn affects their particular interests and incentives for conservation and use of natural resources. The explicit recognition of this diversity of opinions, interests and opportunities, and the complexity that it introduces to conservation processes and activities, is the first step to promote sustainable natural resource use. Working with diverse social actors and providing conditions for a more balanced participation and distribution of power, can lead to the discovery of new and better solutions towards sustainable human development and Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 2

3 conservation goals. This can be accomplished by incorporating participatory approaches into research, planning and projects. IUCN s activities must not create or perpetuate existing social, economic and cultural inequalities and inequities. Therefore, IUCN recognises that adopting social equity principles and measures means going beyond recognising the differences, it means working towards more equitable distribution of power at regional, global and national levels, within communities and households. IUCN seeks to understand and address the processes of socio-economic differentiation affecting the unequal distribution of the costs and benefits of conservation or utilisation of natural resources, between different stakeholders and social groups. Gender and Equity IUCN understands that gender equity is an integral part of the broader social, economic and cultural agenda for changing power structures that are obstacles to equitable human development for all individuals and social groups. Recalling IUCN s Gender Policy Statement, IUCN seeks to: Adopt a gender perspective, which means understanding and analysing the different roles, relationships, rights and responsibilities, needs and visions of women and men as well as the social relationships that shape this difference. This in turn means recognising women as well as men as managers, producers and consumers of environmental resources, as well as their full rights as decision-makers. Promote gender equality and equity within conservation, and to promote a more balanced relationship between women and men in the distribution of costs and benefits, access and control, and decision-making opportunities, over natural resources. The search for gender equity and equality has to take into account the need to respect cultural diversity and to avoid ethnocentric interventions. Adopt participatory methodologies developed within stakeholder and gender analysis, which facilitate just and full participation at the community level and that promote more balanced relationships for natural resources management. Further, IUCN understands that social and gender equality and equity are Union-wide issues that should be an integral part of all policies, programs and projects. Therefore, IUCN seeks to: Develop institutional mechanisms and structures that fully support social, economic and cultural equity and diversity within conservation and natural resource management. This objective requires IUCN to become an organisation in which differences between local, national and global levels, between natural and social scientists, experts and local people, North and South, men and women, are recognised and addressed toward more equitable power sharing. Tenure and Participatory Management Sustainable use of natural resources cannot be achieved unless fair access and control to natural resources are available to local people, without discrimination based on gender, class, ethnicity, age or other social variables. There is a need to empower communities and local users, recognising their rights and responsibilities, ensuring their means to sustainable livelihoods and human development. Fair and safe tenure systems for land and natural resources increases social stability and local resources users' incentives and abilities to participate in resource management decisions in effective ways. Therefore IUCN seeks to: Promote collaborative management within conservation and sustainable use of natural resources and address the need to promote national processes that empower local communities rights and responsibilities to fully participate in the planning, implementation and decision-making processes affecting resources management in their lands and territories. Support governments and nations to invest in stakeholder consultation and negotiation mechanisms and to adapt legal and institutional frameworks to allow participatory management of natural resources (e.g., community-based management, collaborative management). Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 3

4 Promote tenure systems that support fair access to the land and to natural resources beyond gender, caste, class, ethnicity, age, or any other social discrimination, as basic foundations for achieving conservation and sustainable use of natural resources. Promote those processes that support local institutions, and strengthen local communities' secure access to, and control over, land and resources, equitable sharing, education and training, as well as full and fair participation in decision-making processes. Involve different stakeholders by working at the local level to promote decision-making institutions and collaborative management, building a partnership based on trust, respect and solidarity. Recalling the WCC Resolution 1.42 on Collaborative Management for Conservation, IUCN seeks, in particular, to promote the participation of local groups and communities, which frequently are marginalised in resource management and development processes. Indigenous and Traditional Peoples Indigenous and traditional peoples have often been unfairly affected by conservation polices and practices, which have failed to fully understand the rights and roles of indigenous peoples in the management, use and conservation of biodiversity. In line with numerous international agreements (e.g., Agenda 21; ILO convention no. 169; Article 8(j) of the CBD; and the draft UN Declaration on the Rights of Indigenous Peoples) several IUCN WCC resolutions emphasise indigenous people s rights to lands and territories, and natural resources on which they have traditionally subsisted. These resolutions stress the need to enhance participation of indigenous peoples in all conservation initiatives and policy developments that affect them. Furthermore, they recognise that indigenous peoples possess a unique body of knowledge related to the conservation and use of natural resources. Recalling the WCC Resolutions 1.49 to 1.57, IUCN aims to: Respect indigenous people's knowledge and innovations, and their social, cultural, religious and spiritual values and practices. Recognise the social, economic and cultural rights of indigenous peoples such as their right to lands and territories and natural resources, respecting their social and cultural identity, their customs, traditions and institutions. Ensure full and just participation of indigenous peoples in all conservation activities supported and implemented by IUCN. Support indigenous peoples' right to make their own decisions affecting their lands, territories and resources, by assuring their rights to manage natural resources, such as wildlife, on which their livelihoods and ways of life depend, provided they make sustainable use of natural resources. Strengthen the rights and full and equal participation of traditional institutions and to strengthen the capacity of indigenous people to ensure that they benefit from any utilisation of their knowledge. Security and Equity Social equity is the cornerstone of long-term environmental and human security, and a prerequisite of sustainable conservation of nature and sustainable use of natural resources. The main driver of unsustainable environmental practices is the demand for natural resources generated by inequitable consumption, distribution and global economic development patterns. These global mechanisms exacerbate the demographic pressure on natural resources exerted by communities and individuals whose livelihoods rely more directly on natural resources. The same patterns that increase high standards of wasteful consumption in the developed countries increase resource scarcity, conflicts and poverty in developing countries. It is often the poorest people and communities who are affected by this disproportionate appropriation and consumption, and by environmental degradation. Globalisation has many different impacts on local and national economies and societies, affecting people's lives and the use of natural resources. Expansion of markets, communication, Western consumption patterns, homogenisation and modernisation of Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 4

5 culture and lifestyles, increasing pressure on natural resources, and sharpened differences between rich and poor, are some trends affecting the long-term security of the human race on global scale. There are few places that are not fully integrated into the global economy. Increasing interdependencies leave no "safe place" on earth, making environmental and social issues a common urgent agenda for all people around the world. IUCN seeks to take advantage of the means and opportunities generated by globalisation to make conservation and sustainable use of natural resources a public affair and a priority, linking environmental and social concerns to find sustainable, equitable and viable alternatives for the new millennium. Social equity within conservation has to guide the work of IUCN, linking social and environmental concerns and building partnerships for sustainable development. There is a need to raise awareness, increase networking and to build institutional capacity to speed and spread this process and ensure its sustainability. The aim is to secure healthy ecosystems and to build strong democratic and fair civil society throughout the world. IUCN fully understands that the role played by population dynamics in regard to natural resources is mediated by gender, health, adaptive strategies such as migration, where factors related to social equity and political ecology are involved. Therefore, IUCN seeks to: Poverty Better understand the interactions between population dynamics and use of natural resources for specific regions, social groups and biomes. Develop partnerships to achieve a more detailed and clear conceptualisation of these interactions and their implications for conservation and sustainable use of natural resources. Take into account empirical knowledge on population dynamics in regard to natural resource management, to develop strategies that promote sustainable livelihoods and national and global policy development that enhance equity and socioenvironmental security. One of the most direct linkages between resource scarcity and conflict is the link between unequal resource appropriation, poverty and environmental degradation. Fair tenure systems and participatory management of natural resources can provide a more solid base to achieve food security as part of the promotion of sustainable livelihoods. The development and implementation of environmental laws, regulations and practices must contribute to increased access to environmental goods and services in equitable and sustainable ways, promoting strategies that reduce inequalities, human insecurity and mitigate conflicts. Social considerations have to guide policy and institutional development, and the need to compromise short-term individual interests to achieve long-term common goals. Negotiation of conflicting interests, dialogue and compromise to build consensus are the institutional mechanisms to facilitate more equal access and control to resources, costs and benefits sharing and responsible consumption. These processes will reinforce social cohesion and resilience and the spread of sustainable practices, which can make societies more able to better respond to natural disasters. Therefore, IUCN fully understands that: Conservation of biodiversity and sustainable use of natural resources need to be based on equitable tenure systems and participatory management that respond to the needs and well-being of different stakeholders, while maintaining biodiversity and ecosystems functions. Reducing resource degradation implies alleviating poverty, since they have common roots in the current patterns of economic development. Therefore, IUCN seeks to: Alleviate poverty and provide basic conditions for sustainable management while meeting the needs of people living in poverty. Wherever possible address issues of global inequity in policy formulations and programmatic activities. Improve our understanding of sustainable development, based on local peoples' vision, and on the critical assessment of the role of development initiatives in alleviating poverty and environmental degradation. Address the impacts of conservation initiatives on local resource users and interest groups and to facilitate renegotiation of the costs and benefits of conservation among these different groups, in terms that are equitable and socially sustainable. Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 5

6 IUCN Action Plan to Mainstream Social Equity within Conservation and Sustainable Use of Natural Resources There is a need for translating the preceding policy statement into practical actions to develop a Union-wide strategy to incorporate social equity within conservation and sustainable use of natural resources. This process demands changes within IUCN s management, program and project development and policy formulation. Therefore, it requires the institutional commitment to invest resources to build institutional capacity to make this integration successful. This process has to be decentralised and participatory, recognising regional diversity, and building on existing expertise and experiences. It should be based on broad collaboration between different programs within the secretariat, commissions and members, and be facilitated by the Social Policy Program and the Social Policy Global Team. The Action Plan for the next 18 months includes the following steps: 1. Developing global and regional action guidelines on the main themes 2 addressed by the policy statement, to guide members and secretariat to handle these issues in their practical work. Illustrative case studies and best practices should be included in these guidelines, which should be developed for specific regions and biomes. These guidelines will be based on the accumulated experience, lessons learned and discussions of different IUCN members, programs, commissions, initiatives and task forces that have been working on these issues over the past years 3. These activities should provide unique opportunities for closer collaboration within IUCN in vertical and horizontal terms. The Social Policy Program should facilitate this process in close collaboration with designated task forces and global and regional work plans should be set in place. 2. Mainstreaming social equity concerns within IUCN Program Planning Cycle, including global and regional programs, policy development and IUCN members' projects by: Providing technical support to review global program plans to include social equity criteria within strategic objectives and key result areas Providing technical support to review regional program plans to include social equity criteria within the strategic objectives and key result areas. Regional Action Plans should be developed based on the specific state of the art resources and needs. Identifying some institutional benchmarks on social equity to be included in the Program planning Developing tools and methodologies to integrate social equity issues within IUCN project cycle. This process should allow inter-regional collaboration, using existing resources, experience and expertise on gender and social issues within global and regional programs, commissions and members 4. The role of members and partners with expertise in these issues should be expanded in this collaborative effort. 3. Increasing technical capacity of the secretariat to address social equity within the Union, by: Ensuring that at least one full time specialist on socio-environmental dynamics -with expertise on gender and NRM- is part of every regional office staff. For those RO who already have such an specialist, make sure that at least 50% of his/her staff time is freed from project responsibilities to engage in the above mentioned activities and processes. This will require funding staff time to allow the SPGT focal points to become more efficient in their role to mainstream social equity issues in the terms already described above. 2 (tenure, gender, participatory management and stakeholder analysis, equitable sharing of costs and benefit, indigenous and traditional peoples rights in conservation, poverty alleviation and socio-environmental security) 3 (i.e. the Tenure Initiative, Sustainable Use Initiative, Indigenous People Inter-Commissions Task Force and the Forest Conservation Initiative). 4 (e.g., the SPP booklet Promoting Equitable Sharing of Costs and Benefits for Community-based Conservation Projects, the ORMA gender tools of the Towards Equity Series should be adapted and used within the framework and tools developed by M&E at global and regional levels) Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 6

7 Providing on-going training programs using learning-by-doing approaches to provide and expand skills for secretariat and members focused on the conceptual and methodological tools required and in sharing lessons learned. This training program will allow programs, commissions and members to better understand and address the social dimensions of conservation and to achieve more sustainable and equitable results in their work throughout the Union. CEC, M&E and SPP should facilitate this process based on the needs and interests of the different programs and members. Establishing an Advisory Committee for the Social Policy Program to enhance capacity to carry on the integration of social equity concerns within IUCN Program and within the broader conservation and development partners. This Advisory Committee should allow IUCN to expand its partnership with relevant institutions working on socioenvironmental research, training and policy development, to gain increasing understanding of the linkages between IUCN conservation goals and the socio-economic drivers affecting them. 4. Developing effective communication strategies around key social issues to support the process of integrating equity in conservation and sustainable use of natural resources. Communication strategies should be developed at two levels: Within the Union (among secretariat, members and commissions) to facilitate a social learning process that make better use of accumulated experiences, expertise and resources to distil lessons and to design strategies to address social equity within the different components of IUCN work. With IUCN partners, donors and the media to better disseminate IUCN work and results on socio-environmental issues. This would better position IUCN in the outside world to influence policies to achieve its Mission. 5. Ensuring adequate allocation of existing resources to the Regional programs, Social Policy Program (SPGT), CEC and M&E to conduct the activities and process above mentioned. Support the search for additional funding to guarantee the required operational budgets to accomplish the required tasks. For further information contact Dr. Cristina Espinosa, Social Policy Program (41 22) cme@hq.iucn.org Rue Mauverney 28, Gland CH1196 Switzerland Policy on Social Equity in Conservation and Sustainable Use of Natural Resources. Adopted by IUCN Council, February 2000 Page 7