PREFACE

The 75,000 hectare Madikwe Game Reserve is located in the North West Province of South Africa. Prior to its establishment in 1991, most of the land consisted of degraded cattle farms. Since 1991, the reserve has undergone an intensive period of development as a premier game reserve, including an extensive restocking programme of species that historically occurred in the region. Madikwe is managed by the North West Parks Board (formerly Bop Parks), a conservation organisation that is world-renowned for its pioneering approach to people-based wildlife conservation which it has practised since the late 1970s.

Unlike almost all State-owned game reserves in Africa, the approach towards conservation that has been adopted at Madikwe puts the needs of people before that of wildlife and conservation. It is believed by the Board that if conservation is to succeed in developing countries such as South Africa, then local communities and individuals must benefit significantly from wildlife conservation and related activities. If local communities and the region as a whole can benefit through jobs and business opportunities that are created or generated, then firm support for protected areas will be achieved and important conservation objectives will be met almost as a secondary or spin-off benefit.

Madikwe is run in as a three-way partnership between the State (represented by the Board), local communities and the private sector. Without doubt, it is the private sector on which the entire project ultimately depends. The private sector develops and manages a variety of tourism developments and activities in the reserve. A portion of the revenue generated is paid to the Board in concession fees. These concession fees are used partly to maintain the conservation infrastructure and game stocks in the reserve on which the private sector has based its own investment and operations. A portion of the concession fees is also paid to local communities to help finance a variety of community-based development projects. In addition to community projects, communities also benefit from jobs and business opportunities that are created both within and outside the reserve. This in turn further stimulates the local and regional economy.

This partnership, therefore, is of benefit to all parties involved in conservation objectives are met, the private sector generates profits, jobs and businesses are created, communities are developed and valuable foreign exchange is brought into the country.

Madikwe, therefore, should not be looked at as solely a protected area or tourism destination - in truth, the reserve acts as a major social and economic core and engine around which the development of the entire region can be based.

It is strongly believed that the approach being practised in Madikwe will have significant beneficial impacts on local and regional economies, as well as greatly contribute towards the overall improvement in the quality of life of largely disadvantaged rural communities and individuals. People-based wildlife conservation, therefore, should be considered as a viable development option elsewhere in South Africa and in developing countries in general, especially in rural areas where development options are very limited. In this respect, it is believed that people-based conservation offers the only long-term successful approach to wildlife conservation in South and southern Africa and the continent of Africa as a whole.

INTRODUCTION

BACKGROUND TO MADIKWE GAME RESERVE

Madikwe Game Reserve is 60 000 hectares in size and is located in the North West Province of South Africa on the international boundary with Botswana. The reserve has a wide diversity of habitats, ranging from the perennial Marico River to large open plains with steep cliffs on the Rant van Tweedepoort, boulder-strewn koppies and the Dwarsberg mountain range.

Prior to its proclamation, the area now falling within the reserve consisted of largely-degraded cattle farms. A feasibility study commissioned early in 1991 and conducted by Settlement Planning Services (Setplan), showed that developing the area as a game reserve, linked to wildlife-based tourism development, was the most efficient form of land use and the most beneficial to the local communities. As a result of this study, the development of the Madikwe Game Reserve was initiated, with the reserve being announced to the public in August 1991.

The entire reserve, with a perimeter of 150 kilometres, was fenced. The game re-introduction programme, Operation Phoenix, was initiated in 1992. To-date, more than 8 000 animals of 24 large mammal species have been released into Madikwe and the reserve now sports the 'Big Five' - lion, leopard, elephant, rhino and buffalo.

MANAGEMENT PLAN

This paper sets out the Management Plan that has been adopted by the North West Parks Board as the broad policy framework for the Madikwe Game Reserve. The Plan sets out the primary objective of the reserve, defines the responsibilities and modus operandi of the role players, gives a very brief description of the natural resources occurring in the reserve and the stocking plan that has been adopted by the Park Management and defines the visions, policies and operational guidelines that govern the reserve's ecological management, the zonation of uses, the involvement of the private sector, marketing, infrastructure, community aspects and land issues.

Any changes to these broad policy statements must be presented to The Board. Once these changes are approved by The Board, the Plan will be amended accordingly and will form the basis of a new policy for the reserve. The policies set out in the Management Plan are translated into operational procedures, which may be changed by Park Management provided they do not deviate from the overall policy guidelines.

THE MADIKWE DEVELOPMENT TASK TEAM

The Madikwe Development Task Team is a sub-committee responsible for all development aspects of Madikwe and their impacts on the surrounding region. These include: formulating development budgets; establishing relations and strengthening ties with outside communities; helping set up necessary community institutions; and inviting and initially regulating private sector involvement in the reserve. In addition, the Development Task Team is responsible for formulating and, where necessary, seeking approval for all plans, budgets, policies and procedures relating to Madikwe. This Management Plan, for instance, was draughted by members of the Development Task Team.

The Development Task Team, which meets monthly, consists of a chairperson, who co-ordinates all the activities of the team, ecologists, park managers, The Director, finance and development specialists and community people

DEFINITIONS

For the purposes of the Management Plan and this paper, the following definitions apply:

· The Board refers to the members of the Board as nominated in compliance with the National Parks Act No 24 of 1987 of Bophuthatswana and any amendments thereof;
· The Director refers to the Director of the North West Parks Board;
· Park Management refers to North West Parks Board staff appointed by The Director to manage the Madikwe Game Reserve;
· Development Task Team refers to a sub-committee, which is called the Madikwe Development Task Team, that was appointed by The Board at a meeting held on 13 December 1993; and
· Parks Board refers to the organisation and/or relevant people appointed to carry out specific tasks as the case may be.

PRIMARY OBJECTIVES

The primary objective of the Madikwe Game Reserve is to stimulate ecologically-sustainable economic activity based on wildlife through joint venture operations involving the Parks Board, private sector and local people for the benefit of the people of the region.

Resulting from this primary objective, the continued conservation of the biodiversity of the area will be ensured.

ROLE PLAYERS

To achieve the primary objective, the responsibilities of the three partners in the development, management and operations of the reserve are seen as follows:

PARKS BOARD

As a general principle, the Parks Board is responsible for providing and ensuring all conservation infrastructure is managed according to the plans, objectives and policies as set out in this document. The Parks Board will further encourage, facilitate and co-ordinate the involvement of the private sector and local communities, through agreements where necessary.

PRIVATE SECTOR

The private sector is invited to participate in developing and operating any commercial wildlife/tourism-related ventures in and around the reserve in a socially- and environmentally-responsible manner through agreements with the Parks Board.

LOCAL COMMUNITY

The community is responsible for developing democratic, transparent and legally bound institutions, that can manage the economic benefits that can arise from the operation of the reserve to the benefit of all their members.

IMPLEMENTATION POLICY

The projects in the reserve will be implemented in such a way as to maximise socio-economic benefits to all role players. Specifically, the Parks Board should only involve itself with implementation and management of projects when there is evidence of market failure and the private sector and/or the community cannot or will not manage the project. The Parks Board, however, maintains overall control of these projects.

FUNDING

The funding for reserve developments will be sourced in accordance with the needs of the respective role players. The Parks Board will act as a catalyst to kick-start this process by providing development and operational funding from government grants and from loans generated according to the feasibility of this project. Operational funding requirements from government are intended as bridging facilities until the project can generate sufficient funds for this. The reserve will have to repay all development loans associated with the project to sustain the developments operationally and to support additional regional economic growth for the surrounding communities. The private sector is responsible for its own funding requirements.

NATURAL RESOURCES

Description of natural resources

The varied vegetation reflects the interplay of the low rainfall (~540mm per annum), complex geology (such as dolomites, Bushveld Igneous Complex, etc), broken topography (inselbergs, Dwarsberg Mountains, plains, and the perennial Marico River) and diverse soil formations. This, in addition to its location in the transition zone between the arid Kalahari and the moister eastern savannas of southern Africa, ensures a wide range of habitats which result in turn in a wide diversity of fauna.

Species mix and stocking plan

As part of the restoration process, the Madikwe Game Reserve has been subjected to the world's largest ever restocking operation - Operation Phoenix. Current and ultimate projected numbers (ecological carrying capacity) of large animals are given in TABLE 1.

Please note that in TABLE 1 the figures in the column 'Maximum Numbers' refer to the maximum number for that particular species only. A summation of figures in the column does not represent the total numbers of large animals in the reserve.

Black rhino (100), Sable (400) and Roan (300) will be considered for re-introduction when both they and funds become available. In addition, small animals such as genets, mongooses, aardvarks, aardwolfs, jackals, caracals, honey-badgers, polecats, baboons, vervet monkeys, rodents, bats and numerous other small mammals occur throughout the reserve. The upper limits for all species will be adjusted from time to time, depending on increasing ecological knowledge and changes in the environment.

ECOLOGICAL MANAGEMENT

Vision

The ecological management will be focused on restoring Madikwe Game Reserve to its former state with a view to enhancing the visitor experience.

Policy

The wildlife resources will be used in a sustained and responsible manner in line with the primary objective of the reserve.

Operational guidelines

Bush thinning

With its legacy of mismanagement (with cattle farming), the area currently falling within the reserve became heavily encroached with trees and shrubs. As part of the restoration process, bush is being selectively thinned (not cleared) through a combination of fire, browsing and mechanical means or, where unavoidable, with the strictly controlled use of appropriate arboricides. In line with the philosophy underlying the reserve, small-scale entrepreneurs using labour intensive methods are actively encouraged to undertake the bush thinning where appropriate.

Burning

Fire is an integral part of the ecological system within the reserve. Park Management will use fire judiciously for: bush-thinning, minimizing the likelihood of dangerous wild fires, creating a habitat mosaic, preventing the accumulation of moribund material and protecting property.

Alien plants

There is an active control programme aimed particularly at the eradication of invasive alien species, such as syringa, jacaranda and cactus species. The Parks Board actively encourages the use of indigenous plants around lodges. The introduction of known invasive species is not permitted under any circumstances.

FAUNA

Herbivore population management

The objective is to build up game numbers as fast as possible to ensure visitor game-viewing satisfaction. Subject to the availability of funds, numbers may be boosted by additional purchases to hasten the attainment of ultimate population levels. This objective will require that predator numbers be limited in the initial years.

Within this objective, population management is designed to ensure that rare species are able to increase at their maximum potential rate. This necessitates that the numbers of common species may be controlled initially to minimize competition.

Population management may take the form of cropping, live capture and hunting. Although hunting is an emotive issue, this will be strictly managed. It should be realised that hunting provides an essential source of income during the initial set-up phase of the reserve. However, as only small numbers of post-reproductive males will be hunted, this will have absolutely no negative impact on population growth rates or game-viewing.

Because of the finite size of the reserve, control of certain species will be needed in the future.

Predator management

Leopard occur naturally in the area and are at high densities. There is therefore no need to supplement this population with introductions.

The resident cheetah population is to be supplemented by a once-off introduction of suitable genetic stock. Thereafter, natural predator interactions will be allowed without intervention, provided that the upper limits given in TABLE 1 are not exceeded.

Wild dog are to be introduced on a trial basis, recognising the inherently high risks of failure of such attempts.

Spotted hyaena occur in the area, but their numbers are to be supplemented by introduction.

Brown hyaena are relatively common in the reserve, but are expected to suffer adversely through the introduction of other large predators and the provision of surface water throughout the reserve. Their numbers are not planned to be supplemented by introduction. In the long term, they will not be artificially supported and they are expected to exist at low levels.

Initial lion numbers will be based on prey densities. Thereafter, they will be allowed to increase in numbers in proportion to increasing game numbers and competition from other predators.

These predator introductions will, of necessity, be phased with lion being introduced last in order to allow 'weaker predators' time to establish themselves. In line with Parks Board's philosophy, endorsement of predator introductions by neighbours is first obtained. In order to ensure sound management, an intensive predator monitoring programme will be implemented and numbers will be confined within the upper limits set in TABLE 1.

Problem animals

It may arise that a few animals in the reserve become a problem to lodge managers or visitors. These instances must be communicated to the Park Warden, who will then assess the problem and communicate with the lodge operators/owners regarding what steps will or may be taken.

MONITORING

Monitoring of all components of this system (fauna, flora, rainfall, fire, hydrological processes, erosion, etc) is essential in order to measure the success of, and if necessary adapt, management actions as well as provide an ecological/economic audit of wildlife use and resources.

USE OF NATURAL RESOURCES

Wildlife-based tourism is the prime form of resource use. Other secondary uses (eg hunting, wood harvesting, thatch, clay collection, harvesting of medicinal plants) will be allowed from time to time, provided that these do not physically impact on tourism.

WATER DISTRIBUTION

Dry season water distribution will be provided throughout the reserve at approximately 10-kilometre intervals to provide focal points for game-viewing. Park Management, in consultation with an ecologist, maintains full control of each of the water holes and reserves the right, with due consultation with affected operators, to close these from time to time should ecological considerations so dictate.

ZONATION

Vision

The Madikwe Game Reserve will be zoned to minimize potential conflict between various user groups.

Policy and guidelines

Park Management will decide on the zones and their location in the reserve. Various categories of zones have been identified.

LODGE AND EXCLUSIVE USE AREAS

These are areas in the immediate environs of a lodge whose exact size is agreed to through negotiation with the Development Task Team. Broadly, size is a function of number of beds, concession fee paid, capital costs of the development and its location with respect to unique natural features. While operators are not restricted to this zone, they do have exclusive use in it. Park Management, however, retains access and all management rights in these zones at all times. The operator retains any agreed development rights subject to an Environmental Impact Assessment (EIA) and possible re-negotiation of concession fees and carries any costs associated therewith.

RESTRICTED COMMUNAL ACCESS

These areas are central or unique features of the reserve that are preserved for use by all concessionaires on an equal basis.

It must be realised that the economic viability of the reserve is directly related to income generated from concession fees. Accordingly, Parks Board is bound to maximise income without detracting from the exclusivity which the concessionaires are entitled. Areas that will always have permanent access include parts of the Dwarsberg, Rant van Tweedepoort, Marico River, inselbergs and some of the open plains.

SELF-DRIVE AREAS

These areas are parts of the reserve which are set aside for access to the general public to satisfy their desire and right to enter state land. Intensive outdoor recreational facilities may be provided in this zone.

HUNTING

No portion of the reserve is permanently reserved for hunting. This activity will be conducted under strictly-controlled conditions in areas periodically identified for this purpose by Park Management with due consideration being taken of concessionaire rights. Normally hunting will not take place in exclusive use zones, but could occur in exceptional circumstances.

OTHER RESOURCE USE

No portion of the reserve is permanently reserved for resource use (eg wood collection, thatch harvesting, etc). Such activities will be conducted under strictly-controlled conditions in areas periodically identified for this purpose by Park Management, in consultation with an ecologist, and with due consideration being taken of concessionaire rights.

PRIVATE AREAS

These are areas of land which are fenced into the reserve through agreements with the Parks Board, but which are owned by private individuals, companies, trusts, communities, etc. No access is allowed to these areas unless by prior arrangement with the landowners. Park Management, or their nominated agent, will obviously have access for control purposes.

PRIVATE SECTOR

Vision

As a guiding principle, the Parks Board encourages private sector involvement in the reserve in all aspects that can be handled in a cost-effective, socially-responsible and practical manner and which meet with the Parks Board's quality requirements.

All developments, investments or contracts undertaken must maximise the number of local people employed and the company or individual must be committed to developing the skills available in the area for the contract or development, where appropriate. Where possible, the work should be sub-contracted out to local people if the skills are available. Priority will be afforded to those local people who wish to participate in the reserve and its related activities when opportunities arise.

Policy

In the spirit of the operation of the reserve, it must be stated that the private sector, Park Management and the community are all shareholders in the reserve. Good communication between these parties is therefore essential.

The private sector is seen as an important party in the reserve who are responsible for the planning, development, management, marketing and financing of lodge and hotel developments, as well as implementing projects and managing them on a contract basis where appropriate. These activities will create opportunities, such as jobs and small businesses. Where practical and feasible, these should be directed at the local people first. Should there be obstacles, especially regarding development and training needs, it is the responsibility of the private sector to identify these and address them where possible. In addition, and where it proves cost-effective and meets required quality standards, supplies should be sourced locally. Local people and businesses should be afforded priority where possible.

Development and operational guidelines

Contracts will be awarded according to Parks Board Policy. For new lodge or hotel developments or for concessionaires to operate in the reserve, lease agreements must be entered into. For leases or concessions whose time period validity is for five years or less, The Director may approve the agreement. It is specifically recorded that these leases may not be extended beyond the five-year period without the approval of The Board. These may be awarded on a demand basis according to reserve capacity, which will be determined by the Development Task Team or Park Management. For leases in excess of five years, approval from The Board is required. These leases must be awarded by public tender, but are administered by Park Management once they are operational.

Generally, leases and contracts will be awarded to companies or individuals who have a good proven track record in the industry. However, for smaller contracts or leases, opportunities may be given to smaller newly-established companies or individuals. Priority will be afforded to local people where quality, time and standards are commensurate to the reserve's needs.

Developers, concessionaires and contractors must operate within defined codes of conduct and rules that are in place. These will be circulated by Park Management and may be amended by Park Management from time to time.

LEASES, DEVELOPMENTS AND CONCESSIONS

For the right to operate lodges, camps, etc and concessions in the reserve, a concession fee will be levied. All fees levied and all income earned will be paid into a trust fund. All of these funds will be used for the following:

- to offset development and operational costs of the reserve;
- to finance other developments in the immediate region; and
- to develop conservation projects elsewhere.

The concession fees are determined by The Director for concessions of five years or less and by The Board for periods in excess of five years. They are set according to the size, location within the reserve, timing and nature of the development or operation. In addition to the concession fees, an entrance/user fee will be levied per visitor. This is determined by The Board, but may be waived in certain circumstances by the Park Warden.

The developments must be done according to a development plan for which an EIA must be carried out to Parks Board requirements. The plan must be agreed to by the Development Task Team or Park Management and may not be deviated from without consent.

In order to facilitate the above, appropriate agreements will have to be implemented between the relevant parties.

NUMBERS OF CONCESSIONAIRES AND DEVELOPMENTS

Concessionaire and visitor numbers will be set according to the following criteria:

- to ensure the reserve is financially viable (including operational and development costs in and around the reserve); and
- to stimulate economic activity in the region.

Although these criteria will be maximised, this will be done with due regard to the tourism product being offered.

MARKETING

Vision

The Madikwe Game Reserve as a destination, the concept of sustainable use of wildlife resources and community involvement with private sector participation must be marketed to the public.

Policy

As a general principle, those who stand to benefit from the marketing of the particular product must carry the costs associated with the marketing. However, no marketing or the contents thereof is permitted that conflicts with the operations, policy or management guidelines of the reserve.

Operational guidelines

There are four components of marketing -

- the selling of the concept of the Madikwe Game Reserve, which includes the philosophy and policies of the reserve. This is the responsibility of The Director;
- the initial selling of development sites to the private sector. This will be done by the Development Task Team or an agent appointed by them;
- the marketing of the lodges. This will be undertaken by the individual lodges; and
- the marketing of the reserve and the region. The Parks Board will endeavour to ensure that state agencies include the Reserve in regional or national marketing campaigns.

There may be some opportunities for both the Parks Board and the private sector to market lodges and the reserve jointly. Where this is appropriate, the parties should work together. Close liaison between the parties should be encouraged. All marketing material concerning the reserve should be screened by Parks Management to avoid creating false impressions about the reserve. If this is not done, the Parks Board may not be held liable for any statements made or any impressions created. Developers and lodge managers are cautioned against making public statements concerning issues relating to the Parks Board's management of the reserve and surrounding areas and creating the impression they speak on behalf of the Parks Board.

INFRASTRUCTURE

Vision

The Parks Board will be responsible for ensuring that the conservation infrastructure is developed and maintained and the private sector is responsible for the tourism developments and related products within their respective exclusive use zones.

Policy

The Parks Board will ensure that the conservation infrastructure is developed and maintained throughout the entire reserve. The Parks Board will decide on what standards and quality are required and what developments will be placed where. This will be done within budgetary constraints and according to needs. For any development, an EIA must be undertaken according to reserve guidelines.

Development and operational guidelines

As a general guideline, the Development Task Team will ensure that most reserve infrastructure, which is the Parks Boards responsibility, is developed according to plans and budgets and Park Management will ensure these are maintained in good working order. In addition, the Development Task Team will assist Park Management with monitoring and controlling private sector developments.

ROADS

The Development Task Team will ensure a road network is developed and Park Management will ensure they are maintained within the communal use areas. Most of these roads will be tracks for use by 4x4 vehicles. There will be some all-weather roads in the communal areas to allow year round accessibility to at least some areas of the reserve.

The roads and tracks in the exclusive use areas will be supplied and maintained by the lessee of the concession area. However, these roads or tracks must be aligned and constructed according to an EIA which will be determined by the Park Warden in consultation with the reserve's ecologist.

STAFF ACCOMMODATION

The Development Task Team will supply accommodation for their own staff, who will be required to work in the reserve, according to Parks Board policies. This will be maintained by Park Management. The lodges and private developers are responsible for supplying their own staff accommodation. If this is located within the reserve, then it must be located within their own exclusive use area. Only staff who are directly involved with the day-to-day operations of the facilities may be accommodated within the reserve. This accommodation must meet minimum industry standards and must form part of the development plan.

Should lodges supply Parks Board staff with accommodation, it must be built and maintained according to Parks Board standards.

OFFICES AND WORKSHOPS

Park Management will operate offices and workshops within the reserve for their own use as required. Should developers require similar facilities for their own use, they must be built according to the development plan in their own exclusive use areas.

SERVICES

Telephones, radios, electricity and water for use by the lodges must be supplied, maintained and paid for by the lodges and they must ensure they have sufficient capacity to supply their needs. The reserve will provide advice and, where necessary, will endeavour to facilitate negotiations with the relevant government departments in order to get these services into the area. All those services required for park management will be supplied and maintained from the reserve's operational costs.

AIRCRAFT

Park Management will supply and maintain one dirt airstrip in the reserve for its own use. This strip will be available for use by the lodges, but at their own risk and only with prior written consent. Any conditions laid down when this consent is given must be complied with. Aircraft safaris are only permitted with the written consent of Park Management, but generally would not be encouraged.

VISITOR FACILITIES, INCLUDING TRAILS

Facilities, such as hides, picnic areas and waterholes, in exclusive use areas must be built and maintained by the lessee with Park Management's written consent. Should operators wish to construct facilities outside these areas, this must be negotiated and agreed to in writing with Park Management. If necessary, it should also be negotiated and agreed to in writing with other operators in the reserve on the principle that it is a communal facility and therefore available and accessible to all. Maintenance of those facilities, however, will be to the cost of the lodges. The Development Task Team will ensure waterholes and/or dams are supplied in the communal use areas according to the water plan for game. Park Management will ensure these are maintained. Park Management, in consultation with the reserve's ecologist, will control and regulate these facilities.

WASTE DISPOSAL

Park Management and private operators and developers must adopt a responsible and environmentally-friendly waste management plan. Specifically, liquid waste should be handled on-site according to the development plan in conjunction with the EIA. Solid waste should be separated and sorted on-site and recycled where possible, or disposed of in consultation with Park Management.

ENVIRONMENTAL IMPACT ASSESSMENT (EIA)

Any development within the reserve must have an EIA done according to pre-defined parameters. The developer of that facility is responsible for the cost of the EIA.

FENCING

The Development Task Team will ensure adequate fencing is provided to contain the animals that occur in the reserve. Park Management will ensure this is maintained in good condition. All Parks Board staff accommodation and facilities will be protected from wild animals were relevant. Once again, the lodges are responsible for ensuring the safety of their own staff and guests and should fence these areas adequately. Should they not be fenced, then the Parks Board will not be liable for any claims that may arise from damage to property, injury or loss of life. Erection and maintenance of fencing of private property outside the formally-proclaimed reserve will be agreed to according to the conservation priority the Parks Board places on the land.

ENTRANCE GATES

All entrance gates into the reserve will be under the control of the Parks Board. Should developers wish to have additional gates other than those already present, then the implementation, maintenance and staffing costs will be borne by the developers. This includes Parks Board staff accommodation and salaries and any other costs, if deemed necessary by Park Management.

OTHER INFRASTRUCTURE

The Parks Board will only construct structures necessary for management purposes (eg dams, weirs, waterholes, etc). Should private developers wish to develop structures other than in their own exclusive use areas, this must be negotiated in consultation with other developers and Park Management. Park Management, however, has the final say. EIAs and development plans will be required.

SITING OF LODGES

The lodges should ideally, but not necessarily, be on the periphery of the reserve to reduce the impact of providing services. The costs of providing these services will be borne by the developer.

INFRASTRUCTURE RELATED TO STAFF AND VISITOR SAFETY

The lodges are responsible for the safety of their guests, their staff and their families at all times. This includes providing appropriate fencing around facilities and providing adequate security on game drives or walks. Should the lodge decide not to fence their facilities and provide other protective measures, the Parks Board will not be held liable for any losses or claims.

COMMUNITY ASPECTS

Vision

The Madikwe Game Reserve will contribute towards the upliftment of the surrounding communities through sustained use of the natural resources in the reserve in a responsible and cost-effective manner.

Policy

The Parks Board will assist the community around the reserve, within budgetary constraints, in the following areas:

- ensuring as many benefits from the reserve as possible, both direct and indirect, are supplied to the local community;
- people are developed to achieve their potential so that the benefits can be maximised;
- people and communities are empowered to develop themselves and their communities; and
- institutional capacity is developed so that these ideals can be achieved in a democratic and transparent manner.

These objectives will be met within the parameters of economic and ecological sustainability. However, the Parks Board recognises that for many of these functions, assistance will be required and here the involvement of non-governmental organisations (NGOs) and other departments is encouraged.

Operational guidelines

INSTITUTIONS

Formal institutions that are elected by the communities and are representative of the communities will have to be formed. Their role is to:

- provide a formal communication link with Park Management and other role players in the reserve;
- ensure that ensuing benefits are wisely and fairly shared by the community on community identified projects; and
- to create the linkage between conservation areas and the generation of sustainable benefits to the people who live adjacent to these areas.

SOCIO-ECONOMIC SURVEYS

In order to identify the needs, skills, and economic status of the community as well as the population demographics, a social survey will have to be conducted. This will provide baseline data from which fundamental planning can be based. It will also provide a benchmark against which changes can be measured form time-to-time. It will also provide indications as to what expectations there are concerning the reserve and what issues will need to be addressed to deal with these needs or expectations. This will involve day-to-day monitoring as well as less frequent but more intensive follow-up studies. These will be co-ordinated by the Development Task Team or Park Management.

ESTABLISHMENT OF COMMUNITY STRUCTURES

In order to be able to communicate with the communities, it is important that community structures are used. These structures should ideally be apolitical, democratic and therefore representative of all members of the community. They should operate within a constitution that details what their responsibilities and powers are. They should work within political and tribal structures, but should be independent of these. If structures do not exist within the community, then they should be established. They must be established in areas that have been identified as being impacted by the reserve. The Development Task Team will assist with co-ordinating this activity.

These structures play an important role in communicating any community concerns or needs to the reserve, while at the same time communicating the Parks Board's plans and policies back to the communities. In addition, they must inform the communities of any benefits that may accrue from the reserve so that the people can participate in the enjoyment of these benefits. It is important that the role players in these structures act in the interests of the community that they serve and are not seen to be operating for their own ends. They must, therefore, understand what community development is and must be committed to it. Park Management must ensure that this is understood.

MADIKWE COMMUNITY DEVELOPMENT ASSOCIATION

A Madikwe Community Development Association must be formed to ensure that the benefits from the reserve do in fact flow to the local communities and that they are in a position to make use of these opportunities. In addition, if the communities have needs, these should be presented to this Association which can then see how, if possible, these needs can be addressed. This Association will then put proposals forward as to how these needs can be addressed. This Association should include representatives from the organisations discussed above, developers within the reserve, local government, members from the Reconstruction and Development Project (RDP), relevant NGOs, Park Management and anyone whom these parties mutually agree could play a meaningful role in the development of the region. The Development Task Team will assist with the establishment of this structure.

Ideally, this Association must not be staffed by Parks Board staff members, but should rather be managed and guided, at least initially, by a consultant/s or an NGO. The brief of this person/s will be detailed by a group comprising the Parks Board, the Development Bank of Southern Africa (DBSA) and other skills as may be required, such as a community strategist, economist, etc. This body merely acts as an advisory body to ensure the consultant/s or NGOs are operating within their brief, that no communities are favoured over others and that benefits from the reserve are shared equally.

The consultant/s or NGOs will be responsible for:

- screening projects to ensure they are financially feasible and ensure that local people are equipped to run and manage the projects;
- building capacity within the local communities so that they can eventually set up and manage their own community 'governments' - ie arrange for funding to supply and provide services to their communities;
- ensuring the projects, if developed in the community, enjoy community support;
- developing business opportunities created from the reserve and setting up local entrepreneurs so that they can run sustainable businesses that are financially viable. This may include assisting with accessing funds from development institutions for these businesses. These businesses should not be funded from the Madikwe Trust (see below) as the Trust is intended for community and not individual projects; and
- should funds be required for community projects, ensuring that motivated proposals are put forward to the Madikwe Trust which would then see how funds can be sourced.

MADIKWE TRUST

A community trust, or similar body, must be formed that handles all the income generated from the reserve (except any funds specifically allocated). This Trust will be directed by a Board of Trustees that are elected by the Board from 'society' to administer the Trust according to its conditions. The Development Task Team will be responsible for facilitating and establishing this body.

This Trust should make provision for the following:

- a proportion of the income from the Parks Board is set aside annually for the maintenance of the assets of the reserve, so that the developers can continue to provide a quality product to their guests who provide the income for the Trust;
- any loans outstanding for the development of the reserve must paid;
- funds specifically for community projects which they have identified in their respective communities, these funds must not be directed at individuals within the community; and
- a percentage of the Madikwe Trust is paid into a Conservation Trust for other conservation developments.

The Trust can make loans available for development projects, provided they meet criteria of sustainability, benefit most members of the community and will not expose the Madikwe project to excessive risk. In addition, the Trust can borrow money from institutions, donors, etc, provided the above criteria are met.

PARKS BOARD INPUTS

Park Management must ensure that all these operations and issues are addressed. Park Management will facilitate the establishment of these where necessary. Park Management will have one full-time member of staff, who will be paid from the reserve's operational budget, whose job will be that of community liaison. All other community positions should be funded and staffed from outside the organisation. In addition, Park Management will ensure that the facilities in the Reserve are kept in appropriate condition using the most cost-effective and socially-responsible means.

PARK COMMUNICATION FORUM

There must be regular meetings between Park Management, the community and the developers or other reserve users to discuss the management direction of the reserve and other concerns raised by the parties. These meetings will be convened by Park Management. It is envisaged that this forum will constitute some legal body and will have wide ranging powers. This body will ensure community involvement and benefits are forthcoming to the community.

SOCIO-ECONOMIC MONITORING

A base-line survey of the local communities has been undertaken and follow-up studies must be done to ensure the reserve is achieving its socio-economic development objective. These studies will be commissioned by Park Management and paid for from the operations budget.

CAPACITY BUILDING

Capacity building is essential for improving the community representatives' capability to articulate community needs in the presence of the Parks Board and private sector developments. In order to address this, Park Management will endeavour to link in with other government departments or NGOs.

EMPLOYMENT AND SMALL BUSINESS DEVELOPMENT

The Parks Board will facilitate, in conjunction with community representatives and private developers, temporary employment opportunities and training and development for longer-term employment prospects. The Parks Board will identify what small business opportunities exist and endeavour to co-ordinate these with the relevant government bodies or NGOs for implementation. All small business opportunities will be directed at local entrepreneurs as a priority.

LAND

Vision

The area available for game to move unhindered should be as large as possible.

Policy

The Parks Board should acquire as much land as is feasible under its title. However, if private landowners or communities wish to have their land 'fenced into' the reserve (but still retain their title) and thereby allow the game to have unhindered access across their land, then this should be allowed subject to certain conditions. As a priority, the Marico River should be fenced into the reserve to give the game access to the river and riverine habitat.

Operational guidelines

The Development Task Team should endeavour to obtain the land in the reserve under Parks Board title.

It is recognised that the Marico River forms an important system in the reserve. Every effort should be made to ensure that it is 'fenced into' the reserve, as this reduces the cost of maintaining expensive river crossings and reduces the probability of dangerous game escaping from the reserve.

For land that is owned by individuals or communities who wish to have their land incorporated into the reserve by means of fencing it in, then this may be done subject to an agreement that includes inter alia the following conditions:

- the land must be fenced according to Parks Board specifications and maintained in this condition at the landowner's cost;
- damaged fence must be repaired immediately or reported to Park Management. Should there be any breakouts of dangerous game, these must be reported immediately to Park Management;
- the fenced-in area must be registered against the title deed detailing what restrictions have been imposed on developments and use of the property. These may only be altered with The Director's approval;
- if private land is fenced into the reserve and should the landowner's neighbour/s wish to join the reserve, the landowner must agree to have the fence removed to allow game access to his/her neighbour's property;
- for a specified time, no hunting is permitted for any game that did not occur on the property before incorporation into the reserve. This time will vary depending on the species involved. Other game may be hunted only if a quota has been set for the reserve. The reserve's ecologist will decide on numbers to be removed annually. The landowner will then be given a quota to hunt on his/her land only. This quota will be set in proportion to the amount of game he/she had at the time of incorporation compared with the population in the greater reserve. These figures must be mutually agreed to. Should portions of animals be left, these will be allocated by means of a random draw. Hunting will then only be permitted with permits issued by Park Management;
- no hunting is permitted within one kilometre of the reserve boundary;
- changing or erection of any fences may only be done with The Director's approval;
- lodges and other tourist facilities that are built on private land are allowed access to the reserve under similar conditions and fees as are charged to other operators in the reserve. As a general rule, this should be encouraged as it reduces the impact of the developments on the reserve. However, at least 60% of the number of lodges using the reserve should be built in the reserve itself; and
- Parks Board staff must have free access to the property at all times to inspect the fence and game.

ABOUT THE AUTHORS

Members of the Madikwe Development Task Team involved in compiling this Management Plan include:

Richard Davies, Resource Economist, NWPB
Dr David Grossman, Environmental Consultant
Norman Mathebula, Chief Warden, Madikwe Game Reserve, NWPB
Phineas Nobela, Warden, Madikwe Game Reserve, NWPB
Dr Greg Stuart-Hill, ex-Chief Ecologist, NWPB
Carl Trieloff, Project Manager, NWPB

March 1997