Pastoral system and herders communities

Transcription

1 Pastoral system and herders ommunities Professor D.Dorligsuren Programme Coordinator Green Gold Pasture Eosystem Management Programme 1. Introdution 2. Setting up of resoure boundaries 3. Resoure User Groups 4. Property right and organizations 5. Eonomi mehanisms of Selfgoverning Organizations Swiss geny for Cooperation and Development, Mongolia 1 2 Climate Contribution of Livestok Husbandry: Total number of livestok 40.3 mln. head bout 20 % of GDP 87,0 % of Total griultural Produts 36.2% of employees Basis of Mongolian traditional nomadi ulture and ivilization Preipitation bydereased 8,712,5% Livestok Before 90s 2426 mln Inreased by 70 % Inrease of livestok number and produtivity Improvement of livelihood In ,3 mln Carrying apaity Pasture yield # of herders # of herders housholds # of livestok per 1 herder Pasture Herder In omparison with 1980s Before 90s bout 180 Exeeded by 27% Dereased by 20 30% Speies omposition Dereased be 2 folds 70% of pastureland degraded Inreased by 269 % verage air temperature inreased by 1,92,1% In bout 110 Improvement of pasture management For last 65 years 3 4 Herder Herd Pasture Ratio Items In 2007 Optimal ratio Ratio between 2007 data and Optimal (%) Herder Herd, (thous. head) Pasture arrying apaity ( 000 head in sheep unit) Optimal ratio between the basi elements of pastoral system and its sustainability are ollapsed Negative onsequenes: À) low resiliene of pasture eology; deterioration of pastureland leading to inreased desertifiation proess; B) May affet eonomi and soial resiliene and further sustainable soioeonomi development of the ountry;. Set up organizational strutures (herders ommunities) apable to maintain optimal relationship and ratio between elements of pastoral system and providing normal ativities and sustainability of the system 5 6 1

2 Herders ommunities are the formal and informal, selfgoverning NGOs established on the voluntary basis, guided by the priniples of demoray, honesty and publiity, ombining tradition with renovation, undertaking ativities to defend interest and right of their members, improve livelihoods, inrease prodution effiieny, apable to pursue a poliy in aordane with the tendeny towards sustainable development of Mongolia and to adapt to the hanging onditions. Community Development Proesses in Mongolia Before 1960 Khot ail, neg gol, neg nutag, neg usniihan Common aess pasture, private animal: (traditional) Suuri, heseg, bag, negdel Both pasture and animal state property (state owned and stritly regulated by top) 1990 up to now Common aess pasture and private animal Khot ail, neg gol, neg nutag, neg usniihan (initiatives to support herders ommunities) 7 8 Why to establish selfgoverning, loal ommunities (organizations): 1. To organize olletively ativities for the appropriate use of pastures under ommon use and for overoming natural and limati disasters 2. Users of resoures and diret benefiiaries are herders who only should have interest to use and protet pastures appropriately. 3. For insuring their safety life herders should have flexibility and ability to adapt to the natural and limati hanges through joint efforts. There is no room for inorret deision. 4. Establishing and strengthening of loal, selfgoverning, herders organizations allow to save muh waste of management. 5. Selfgoverning herders organizations would reate favorable onditions for real demoray. Western eletion demoray would be introdued into life of Mongolian nomads when herders have established their selfgoverning organizations to work together and make deisions themselves. 6. demand for shifting power to itizens and their voluntary organizations is inreasing muh more if onsider the long term tendeny toward maintaining orruption, disorder and governane shortage at all level of state governing bodies. Establishment of good governane and weakening of entralization does not mean to strengthen loal governments and to shift all power to them. It should be understood as inreased mobilization of itizens (herders ) partiipation and initiatives for deision making and development of rural area Establishment of resoure boundary Basi priniples for establishing herders ommunities First step. The first step of organizing joint ativities is the establishment of boundaries of ommon resoures and empowering the right for using this part of pastureland Establishing of boundaries depends on the aim of use of the resoure. Two types of use of pastures: Mobile and stationary; ording to this Pastoral Livestok Husbandry and Intensified livestok husbandry are kept. Establishing of pasture boundaries is different for these two forms of farming

3 Stationary pasture use praties or intensified husbandry are possible in areas with relatively favorable limati onditions and where pastureland improved by human labor (ultivation, fening, irrigation, reseeding). setor with higher investment, produtivity and effetiveness suffers usually less from natural and limati risks. In suh ondition, the size of land needed for prodution ativities depends on many fators inluding amount of investment, input of prodution fators, prie et,. Possibility to keep prodution in a large area is limited. Mobile use of pastureland is dependent not only on the natural fators suh as limati onditions, geography, water supply, plant produtivity and quality but also on the soioeonomi and ultural fators like soial and infrastruture development, distane from market, tradition, ooperation et,. In order to inrease self resiliene of soioeologial system in a partiular area, it is neessary to establish resoure boundaries onerning the fators suh as flexibility, possibility of moves, ability to overome risk and vulnerability, adaptation apability et, Pasture use map of Ikhtamir soum, rkhangai aimag Legend Soum boundary Bag boundary PUG boundary PUG number The fous of the group is to ensure equitable aess to a given pasture or a set of pastures based on traditional arrangements or a set of new rules mutually developed by the group Defining of PUG boudaries by using seasonal pastures Depending on the natural features of a partiular area, possibility of joint use, tradition, possibility of mutual agreements, three forms of establishing pasture boundaries involving herders are available: 1) herders of some soums divide pastures by building their winterspring amps; 2) herders of some soums establish boundaries for both of winterspring and summerautumn amps; 3) herders of some soums divide pastures onsidering two possibilities mentioned above; Some soums establish boundaries of pastures within the fixed bagh boundaries but the others do not onsider bagh boundary. 8 9% 24 28% 55 63% By four seasons pasture By winter and spring pastures By summer and autumn pastures

4 Defining of PUG boundaries by using administration unit Pasture area of a PUG of Green Gold Programme, ha % 9 10% Soums Telmen Tsengel Ikh tamir Ondor Shireet Olziit Total for 5 soums 1 For all PUGs The largest area % 78 90% 3 4 verage The smallest area Within bag administration Betw een bag administration Within bag administration Betw een bag administration 5 verage pasture area per herder household fter the boundaries of pastures being established the seond ritial issue is to determine arrying apaity of pastures. The third important issue is to limit, regulate the number of livestok aording to the arrying apaity of a pasture. For that 3 possibilities are existed: 1. Regulation by Nature and Climate 2. Regulation by the State 3. Regulation by members of Herders Communities Regulation of livestok number is one of the ompliated issues to solve in the transition period toward market eonomy. Before Revolution of 1921 herders used to keep few livestok to maintain every day life as their onsumption level was very low. There was no possibility to keep more animals as they have had insuffiient material basis suh as fenes, shelters, water supply et,. In the State regulated the number of livestok. Sine 1990 when Mongolia shifted to market eonomy no legal and organizational framework was reated to solve this problem. It affets sustainable development of livestok setor. (1) inome of herders would be dereased; 2. Prie for goods and servies inreased; no network of marketing livestok produts established; olletion and transport osts of produts would be inreased due to sparsely distributed herders households with small amount of produts produed Limiting of livestok number by size of winter and spring pastures may serve as the most suitable option. In this ase, winter survival of livestok would be an important riteria. Considering the (1) produtivity and suffiieny of pastures near winter and spring amps, (2) amount of hay and fodder prepared for winter feeding and (3) ability to move to otor reserve pasture in ase of severe winter, the herders living within the defined boundaries an jointly ome to an agreement to fix the number of livestok per herder household and ontrol over its implementation themselves. Group SubGroups 2. Resoure User Groups and SubGroups PUG with fixed boundaries of Groups Khot ail Herder group Cooperative Comradeship Others

5 Within the general regulations of User Groups, individuals and subgroups are organized and get possibility to undertake ativities. Suh kinds of herders organizations are inevitably needed from the view of ooperative work, every day relationship, saving time and transport osts, and flexible deision making. These groups and subgroups are usually formed through the links of relatives and friends, and also due to the neessity to work as one team (willingness of herders with few animals to look after livestok of wealthy herders, willingness of nonexperiened herders be supported by experiened ones, to join the individuals with higher organizational and managerial skills, to keep business ontats, joining of individuals who trust eah other on the voluntary basis for short and long term ativities). PUG should be organized within the fixed boundaries. Herders living within the boundaries they defined themselves are to beome members of a ommunity (groups, subgroups or omradeship) not depending on they want to or not. This is not top down deision but inevitable neessity to aept the priniple of ommunitybased resoure utilization. Only on these basis freedom and interest of a individual are realized PUG size, by households statements For forming groups the following items are important: Size, learly defined boundaries, shared norms, past Statements Telmen Tsengel Ikhtamir suessful experienes, soial apital, appropriate Under shireet Ulziit verage of 5 soums leadership, independene among group members, 1 Total number of herding households heterogeneity of endowments, homogeneity of identities and 2 PUG with highest number of households PUG with average number of houeholds PUG with lowest number of households Pasture land per household by hetare Number of animals per households Number of animals per 100 hetares by sheep unit Stoking rate per 100 hetares by sheep unit interests, levels of poverty, honesty et,. (grawal.the drama of the Commons, pp62) 27 Piture Property rights and Organizations It is neessary to seure defined boundaries of pasturelands and organizations of users of these resoures by legislative ats. The right is a norm for resoure use and it establishes rights, responsibilities and norms raised from the relationship of individuals and enfores their implementation in every day ativities. Who empowers these rights and responsibilities? Who enfores their implementation? On the one hand, state organizations of any level develop Laws, Resolutions, Regulations and Orders through the Citizens Representative Organizations, and State, State Organizations and offiials engaged in these organizations bear the responsibilities for their implementation and ontrol over. On the other hand, itizens (herders) establish selfgoverning organizations, take diret partiipation (not through representatives) in their ativities and disuss jointly about the regulations and their maintenane. The size of these organizations may vary signifiantly. Some of them follow the traditions, ustoms, morals or manners aumulated for hundreds years in a partiular area but others follow bylaws or rules they have just developed jointly. Sketh map developed by PUG memberherders will be heked arefully by PUG head and submiitted to bag governor with other related douments

6 l l l l Relationship between rights and position Property right Selfgoverning organization Failitator ess Owner Proprietor Claimant uthorized user uthorized entrant Pasture Herder household l SubGroup l Group l Bagh Soum imag Government Withdrawal Winterspring Summerautumn Management Reserve (otor) Hayfield Exlusion lienation Route of otor moves 31 aess W Withdrawal M Management E Exlusion l lienation 32 Selfgoverning organization Failitators Groups PUG Bagh Soum imag MSRM Bagh Soum imag Government Sub Pasture Pasture Pasture groups CMC CMC CMC Organization s Status Nokhorlol NGO Organizations implementing state poliy (omradeship), NGO Coordination norms Regulations, orders Laws, resolutions, deisions, degrees Type of Governane Selfgoverning Failitating Monitorin Pasture ondition Herders themselves s stated in the Law on land professional uthorities are to evaluate pasture onditions g and (health) assessm ent Users behavior ssess ability to work in groups Make answerable for s stated in s stated in the related legislative ats responsibilities regulations and Orders Eradiate onflit, solve argument Disuss and solve by Disuss and solve at the meeting of Pasture Comanagement Committee Khural. If no joint agrreement ahieved, Disuss at the Citizens Representatives Groups Governor is to make final deision Eonomi mehanisms Pasture fees, fees for livestok entered from outside, leasing fees, state budget, aid and other inome soures 1. Pasture land legislation Legislation of seasonal pasture. Seasonal pasture is possessed by ommunities, herders, herding households and household members. Possession right of PUG: It is neessary to give long term user right or possession right for PUG or ommunity in ertain pasture/s. PUG will have ertain rights in their parel/s: a) to aept possession of winter and spring pasture/s for their member households and herders, and b) to define grazing time and intensity for ommon aess pastures suh as summer and autumn pasture, otor and reserve area/s; to regulate utilization methods within PUG, to deide whether or not to reeive animals from outside PUG and to rent ertain pasture based on PUG potential. PUG will not right to sell and give loan mortgage PUG land. Pasture Comanagement Follow a priniple of relying on Selfgoverning Organizations PUGs established based on summer autumn pasture will be deide utilization of summer autumn pasture. Certain parel of pasture land an be used by ontrat based for subgroups, households, khot ails and ooperatives within PUG in ertain time. This would be deided by PUG all members meeting. This group must have only rights written on utilization ontrat (i.e. they do have right to use pasture and exlude others animals; do not have right to sell, rent and give for loan mortgage) 1.2. Possession right for herder, herding household and its members: Herder and herding households will have limited possession rights fro their winter and spring pasture/s. In other words they have right to inherit, exlude others animals, lease and sell pasture/s within defined parel. In this ase pasture land an not be loan mortgage and leasing and trading will be regulated by PUG by law

7 2. Legislation of otor and reserve pasture/s National level otor area would be State property and possession and user rights will be regulated by entral state organization dealing with agriultural issues and its ageny Loal level otor area will be regulated by loal governors. 3. Legislation of hay making area. Herders and herding households an possess hay making area with limited rights. They have right to inherit, exlude others animals, lease and sell pasture/s within defined parel. In this ase pasture land an not be loan mortgage and leasing and trading will be regulated by PUG by law. 4. Corridors for traking animals and otor movement. Certain orridors would be under authority of soum governor who enfores rules approved by soum itizen s representative meeting. Within framework of these regulation rules that inlude providing of possession ertifiate and signing ontrat would be developed and implemented Organization SelfGoverning Organization Failitator PUG is primary unit of herders ommunities in rural area. This is a group of people living within the defined boundaries and olletively using ommon pool resoures that allow them to protet their pasture land as a soure of livelihood, and regulate movements to adopt to natural and limate hanges. SubGroup Group Bag PMS* Soum PMS* imag PMS* MSRM** Bag Soum imag Government Groups and sub groups (households, hot ail, herders group, ooperative and omradeship et.) may be formed within PUG involving households, kinships or friends staying lose to eah others that have more possibilities to ooperate. In order to keep soial and eologial resiliene the groups have not right to possess PUG pasture area by dividing it into parels. The groups should be formed only to preserve integrity of PUG pasture land, and ensure flexible movements. *PMS Pasture Management Soiety ** MSRM Mongolian Soiety for Range Management Struture of Pasture Management Planning GoM imag Governor Implement ation MSRM imag branh of MSRM 4. Eonomi mehanisms of selfgoverning organization for ommon pool resoure users Soum Governor Motivation Soum Pasture Co Management Committee Bag Governor Monitoring & Pasture User Group State, /failitator/ Evaluation Co Management Herders Self Governane Organization Information and data outflow Information and data inflow

8 Sustainability of any organizations defends on their self finaning apaity. GG supports establishment of PUG fund in programme target soums. PUG fund is established on ost sharing basis. The programme provides 35.0 thousand tugrugs per household and household provides another 35.0 thousand tugrugs for their PUG fund. To some extend this is positively influening on their ooperation and inrease trust (soial apital). Finanial soures of herder s ommunity may be aquired by the following methods: 1. Pasture use taxation from eah herders (reent herders inome tax must be replaed by pasture use tax), at least 80 perent of olleted tax must be left in PUG and pasture omanagement ommittee 2. Having ertain rate of fee from outsiders who used their PUG pasture whih deided by PUG themselves. Espeially grazing fee for riding horses of rih people from ity would be omparatively higher, 3. Inome generated from PUG investments like profit, interest et. 4) Inome or past of the inome earned by ollaborative ation. 5) Other donation and aids Inome distribution (it must be transparent and truthful based on members ontribution) Disbursement (pasture land improvement, animal herd improvement, investing to establishment of profitable SMEs that rely on loal omparative advantages, and soial ativities et.) Thank you for your attention