User Rights and Biodiversity Conservation

The management of tropical forests has evolved considerably during recent decades. In the 1970s, the colonial and postindependence emphasis on maintaining large plantations and maximizing timber production gave way to a dual emphasis on revenue generation and social forestry. More recently, the international community, including developing countries themselves, has begun to recognize the important environmental services provided by tropical forest resources, including water quality, soil retention, biodiversity, and microclimate and macroclimate regulation. Just as the prevailing view of appropriate objectives for tropical forest management has changed, so has support for the devolution, or transfer, of rights to local people. Under the previous forest-management paradigm, which stressed revenue generation and social forestry, governments and international aid agencies encouraged nationalization of forests and the gazetting of land into systems of state forest preserves. This served, perhaps unintentionally but nevertheless forcefully, to restrict the rights of locals. But as the relationship between the landless poor, indigenous groups, and the forest resource came to be better understood, more consideration was given to allowing communities to retain or gain customary and/or legal rights to the forest resource. Now, however, by adding the protection of environmental services to the management paradigm, the effects on the devolution of rights to local people are much less clear. On the one hand, some would argue that the only way to vest locals in the maintenance of the forest resource is to give them specific, income-enhancing rights to its use. On the other hand, examples abound of local populations who have exploited the forest resource in ways that are not sustainable, destroying fragile ecological relationships and degrading the biodiversity of the area in the process. The support for devolution of rights has waxed and waned over the years, with its popularity dependent on both international politics and the world economy. The question of whether to devolve rights becomes especially complicated when considering the fate of protected areas in the tropical developing world. Within the protected areas themselves, user rights exercised by local people either can be relatively benign or can have devastating effects on the local ecosystem.