Saturday, February 03, 2007

Shifting Perspectives—Conclusion

Finally, this brings us to the second Development Riddle, which is: When is a problem not a problem? Answer: When it is part of the solution.

Understanding a social system is not unlike looking at a computer drafted 3 dimensional picture. You may remember these were all the rage about ten years back. At first glance they appeared non-sensical, chaotic, a meaningless mess of objects and patterns. But, if you look long enough, and adjust your perception or perspective accordingly, an image will emerge. Understanding shifting cultivation within the contemporary context of Lao is a very similar process. Once you look past the smoke and the fires, the charred and burnt fields and trees left behind, you can begin to see it in a very different light. Rather than being backward and primitive, shifting cultivators have developed highly in-depth agro-ecological knowledge and management systems that have resulted in Lao having some of the highest biodiversity levels in south east Asia, an incredible genetic heritage of rice species perfectly suited to the local growing conditions and environments, not too mention a huge abundance and diversity of non-timber forest products, all of which make a substantial argument that shifting cultivation can be sustainable. The government of Lao, and all actors and stakeholders should appreciate this as highly valuable asset that is quickly being lost, not as a threat. For too long, shifting cultivators have been blamed for environmental degradation and have been resettled and made to alter their livelihood strategies regardless of whether there were adequate or viable alternatives or whether the promised services and infrastructure could be provided. The underlying assumptions have been that shifting cultivators are invariably poor and therefore any move to improve their lives will inevitably result in greater prosperity. Unfortunately, this has not been the case. These assumptions ignore the vast natural wealth that many indigenous communities possess within their traditional environs. Moved into new communities, cut off from traditional land use practices, provided inadequate land with little training or extension workers and credit, many families and whole communities are falling into new poverty cycles that are difficult to reverse or escape. All of which is leading to higher levels of environmental degradation. Obviously, this cycle must end and development and government agencies need to start looking at shifting cultivation in a new light.

Back in the day, while fighting their “Secret War” in Lao, the CIA had a saying, “If you think you understand the situation, you simply don’t have all the facts!” The fact is that Lao, like any country or culture anywhere in the world I suppose, is far more complicated and dynamic than even a 3D picture. Anytime you think you are starting to figure things out, some little fact jumps out and shatters everything you built. I won’t presume to truly understanding the entire situation as there is no way that I could ever have all the facts. But I have identified a few important facts that can guide future action.

1. Shifting cultivation, if done properly with traditional or effective contemporary soil erosion methods, and sufficiently long fallow periods, can be not only environmentally benign, but beneficial by encouraging new growth and higher biodiversity.

2. Shifting Cultivators do not deserve the stigma or stereotype of being either backwards or poor if they are successfully practicing their traditional methods. (Successful in my opinion, for this circumstance, being that they are meeting the requirements of the first point, while supplying all the nutritional and material needs they require for sustainable economic and social security.) Shifting Cultivators possess in-depth agro-ecological knowledge that, while it should not replace solid scientific knowledge and research, it should be respected and viewed as an asset.

3. Shifting Cultivation does not equal environmental degradation—so long as it meets the requirements of the first two points. There are other sources of degradation that must be addressed together, including: pioneering cultivation, deforestation, large rubber plantations, intensifying agriculture in the low lands, all of which result in soil erosion and sedimentation, and drastic changes in the hydrological regimes of watersheds (ie. Flooding, droughts, etc.)

So where does all this leave us?

It’s one thing to say that the government, NGOs, and development agencies should stop demonizing shifting cultivation and view it as an asset: a major barrier that must be crossed, but what are they supposed to do then? Seems to me to there are plenty of people around doing this first part, but I have yet to see any concrete actions plans, strategies or criteria for planners to work with to actually start integrating in a sound manner into the contemporary planning process and agricultural landscape. All of this assuming of course that shifting cultivators want to keep practicing shifting cultivation. As always, it’s easy to criticize and point out mistakes, it’s a completely different situation altogether to come up with feasible and practical solutions. This is the next step and the entry point for planners, such as myself, have to step up to the plate.

Fortunately, there are some people and agencies who are working on this issue, and within my limited time and experience in Lao I have begun to gather some ideas to approach this issue. Firstly, there are a few preconditions that must be met. Some of these include:

There must be a recognition and understanding by all stakeholders and agencies that:
a. Shifting cultivation with the appropriate fallow periods and practices is not inherently environmentally destructive or unsustainable
b. That without viable and feasible alternatives and means shifting cultivators cannot be expected to change their practices and that shifting cultivation can remain a reasonable and sustainable means of sustenance
c. Adequate land and low population densities conditions must exist to allow for environmentally acceptable practices. (Some have suggested areas with less than 20 persons per 1 km2, may be an acceptable population density to allow for sufficient fallow periods…assuming there are no other practices or land uses in the area…not likely for most locations.)

As I said before, there is a growing awareness and consensus among planners (both Lao and foreigners) that the eradication of shifting cultivation is not only undesirable under current economic and social condition, but highly unlikely for the foreseeable future. In fact, the government of Lao has begun to change its language from a program of “eradication” to “stabilization” wherein shifting cultivators are encouraged to change, but are allowed to practice in limited areas as long as it does not encroach on current forest covered areas. Regardless, I have compiled a short list of strategies and objectives I have been encouraging people to consider throughout my tenure as project coordinator for the Nam Ko Watershed Project, these include:

1. Improve Land Tenure, Land use planning & allocation.
Existing land entitlements in Lao are weak and routinely ignored by government officials. It is far more likely that farmers will engage in sustainable agricultural practices if they have a more secure knowledge that they will have access to the land over a set period of time. Also, by improving upon the land use planning and allocation process, the government will be able to alleviate conflicts and deal with environmental problems more effectively.

2. Improve Fallow Periods & Recognize Fallow as a legitimate form of land use.
Currently, the government of Lao has a regulation in place that if a farmer does not use his land for a period of three years (ie. Allows it to go fallow), than he or she will use their land use certificate. By recognizing fallow as a form of land use, they will provide more opportunities for the regeneration of soils and harvesting of non-timber forest products.

3. Implement development programs that are people centered.
Many development projects have been implemented in a top-down manner focusing on broad development goals that have little to do with the needs and realities of local communities. Local residents should define and establish needs and criteria for development as well as evaluating successes.

4. Ensure provision of viable alternatives to shifting agriculture
Should upland communities choose to relocate and shift from traditional agricultural practices, this should only be done when there are viable and feasible alternatives. Obviously, this is a classic “Chicken and the egg situation”. The government, and development agencies need to recognize that this process will not happen overnight and that traditional methods should not be cut off or disallowed until alternatives are firmly in place and providing for all the needs and requirements of the people that were available from traditional practices and more.

As I have said, this is an extremely complicated situation, and I’m sure that within a few years time, or even in a few months, my own understanding and perspective of the situation will change and continue to evolve…or at least I hope so. I can say with some confidence that I have been learning thus far, as when I look back on what I thought to be true in the past…it was, indeed, pretty much completely wrong.