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Vol. 32: No.

4 Oct-Dec 2005

| Participatory Wildlife Conservation Initiatives in Nepal|


PARTICIPATORY WILDLIFE CONSERVATION
INITIATIVES IN NEPAL

by Gandhiv Kafle and Mohan Krishna Balla

Introduction
2004). His Majesty’s Government of Nepal
(HMGN) has imposed restrictions on the export
A lthough comprising only 0.09% of the global
land area, Nepal possesses a disproportion-
ately large diversity of flora and fauna at genetic,
of 12 plant species and one forest product. In ad-
dition, 27 mammal species, nine bird species, and
species and ecosystem levels. Out of the total 118 three reptile species have been given legal pro-
ecosystems identified by Dobremez (1970), 80 tection under the National Parks and Wildlife Con-
ecosystems are included in the current Protected servation (NPWC) Act, 1973. Fifteen vascular
Areas (PAs) of Nepal (HMGN/MFSC, 2002). plant species, 58 mammal species, 40 bird spe-
Nepal is home to 861 species of birds (including cies, 13 reptile species, one amphibian species and
six endangered pheasant species), about 640 spe- two insect species are listed under various CITES
cies of butterflies, 6,500 species of flowering appendices. Sixty species of non-endemic plants
plants and 175 mammal species (DNPWC, 2004). are regarded as threatened. Altogether, 27 mam-
mal species are listed as threatened by IUCN:
Nepal’s rich biodiversity is a reflection of its unique eight as Endangered, ten as Vulnerable, four as
geographical position as well as its altitudinal and Indeterminate, and five as Insufficiently Known.
climatic variations. The altitude ranges from 57 m Twenty-two bird species, 9 reptile species and 2
(Mukhiyapatti of Dhanusa District) to 8,848 m insect species are listed in IUCN’s Red List (1995).
(Mount Everest) above mean sea level (Amatya Nine species of birds are regarded as threatened
and Shrestha, 2002). It incorporates Palaearctic in Nepal. Altogether, 342 plant species and 160
and Indo-Malayan biogeographical regions and animals have been reported as being endemic to
major floristic provinces of Asia, creating a unique Nepal (HMGN/MFSC, 2002).
and rich diversity of life. Owing to its typical natural
landscape and cultural characteristics, Sagarmatha Nepal has had long experience in wildlife conser-
(Mt. Everest) National Park and Royal Chitwan vation through different approaches. Its conser-
National Park (RCNP) were listed as World Heri- vation policy has evolved from the early empha-
tage Sites in 1979 and 1984, respectively. The sis on species preservation and research with strict
Koshi Tappu Wildlife Reserve, a wetland of inter- law enforcement practices, to a more concilia-
national importance, was declared a Ramsar Site tory and participatory approach (DNPWC, 2004).
in 1987. Three other wetlands – the Beeshajari Nepal embarked upon a modern era of wildlife
Tal (Lake), Ghodaghodi Tal and Jagadishpur Res- conservation with the enactment of the National
ervoir were designated as Ramsar Sites in 2003. Parks and Wildlife Conservation Act in 1973. The
Department of National Parks and Wildlife Con-
Nepal is signatory to various international conven- servation (DNPWC) presently oversees a net-
tions and treaties including CITES, Convention on work of 9 national parks, 3 wildlife reserves, 3
Biological Diversity (CBD) and the Ramsar Con- conservation areas, 1 hunting reserve, and 9 buffer
vention, and has the responsibility of conserving zones around national parks and wildlife reserves,
and maintaining the country’s major representa- covering a total of 27,685.5 km2 , or 18.81% of the
tive ecosystems, genetic diversity, unique natural country’s total land area. The management plans
and cultural heritages, and giving protection to of RCNP, Royal Bardia National Park (RBNP)
valuable and endangered species (DNPWC, and the Buffer Zone Management Plan for
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Vol. 32: No. 4 Oct-Dec 2005

| Participatory Wildlife Conservation Initiatives in Nepal| Sagarmatha National Park have already been to promote Community Forestry (CF) in the BZs
approved by HMGN. and to improve the regeneration of forests by the
community (DNPWC/MFSC, 1999).
It has been realized that conservation cannot be
achieved without the people’s participation. So, BZ development is primarily focused on improv-
conservation programmes are now being designed ing the socio-economic well being of local com-
and implemented in different models ensuring the munities surrounding PAs, while restricting access
active participation of local communities in con- to the PA. Conservation programs are designed
servation, protection and utilization of biological to meet local needs and reduce the dependency
diversity on a sustainable basis. A number of suc- of local people on PA resources by developing an
cesses have been recorded over the years in the alternative natural resource base in the BZ
protection and management of biological resources (HMGN/MFSC, 2002). Legal provisions allow BZs
and their diversity, particularly with protected eco- to be managed under community forest, religious
systems and species, community forestry, agro- forest and private forest structures (Sharma, 1999).
biodiversity and mountain biodiversity (HMGN/
MFSC, 2002). The participation of communities As of 2004, eight BZs have already been declared
in the decision-making process is central to this in different PAs – Royal Chitwan National Park,
success. The participatory conservation approach Royal Bardia National Park, Langtang National
has gained momentum in the conservation of Park, Shey-Phoksundo National Park,
biodiversity of Nepal along with the sustainable Makalubarun National Park, Sagarmatha National
use of resources and livelihood improvement of Park, Koshi Tappu Wildlife Reserve and Royal
local communities since the late 1970s. Devolu- Suklaphanta Wildlife Reserve. More than 127
tion and decentralization of rights and responsi- VDCs are involved in sustainable use and conser-
bilities to local communities for sustainable man- vation of biodiversity in declared BZs. In June
agement of natural resources has built and 2005, HMGN declared the buffer zone of Parsa
strengthened cordial relations with the communi- Wildlife Reserve covering 278 km2 . The new ad-
ties. dition makes a total of nine buffer zones covering
3766.5 km2 .
Participatory wildlife conservation models
Landscape Approach to Biodiversity Conser-
Buffer zone (BZ) models around protected areas vation
(PAs) and the landscape approach to biodiversity The landscape approach to biodiversity conserva-
conservation are the major participatory wildlife tion aims for representation of all distinct natural
conservation initiatives in Nepal, which are de- communities, maintenance of ecological and evo-
scribed below. lutionary processes that create and sustain
biodiversity, maintenance of viable populations of
Buffer Zone (BZ) Management Model species, ecosystem resilience to large-scale dis-
The fourth amendment of the NPWC Act in 1992 turbances and long-term changes and promotion
incorporated provisions for Conservation Areas of sustainable livelihoods.
(CAs) and Buffer Zones (BZs). Subsequently, the
Buffer Zone Management Regulations 1996 and Landscape level conservation is not new to Nepal,
Guidelines 1999 were approved to design as many successful lessons have been learnt
programmes compatible with national park man- through the experiences in community forestry,
agement and to facilitate public participation in the conservation areas and the buffer zone
conservation, design and management of BZs. The programme. Declaring BZs around national parks
amended NPWC Act makes provisions for 30- and reserves with a view to developing compat-
50% of the parks (or reserves) revenues to be ible land use patterns adjacent to PAs to simulta-
retained for community development activities in neously address the growing needs of the people
the BZ. The revenue is disbursed through a Buffer and the rapidly decreasing natural cover is an ef-
Zone Management Committee (BZMC). The BZ fective initiative in landscape conservation. NBS
Management Regulations are the only regulations is committed to making efforts to link PAs with
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| Participatory Wildlife Conservation Initiatives in Nepal|


wildlife-friendly corridors. Development of livelihoods of the local people. Barandhabar For-
biodiversity landscapes through a holistic and in- est Corridor, connecting RCNP with the forests
tegrated approach by incorporating all the ingre- of the foothills of the Mahabharat range in the
dients of a landscape, namely national parks, re- north, is a successful example of the landscape
serves, conservation areas, buffer zones, national approach carried out at the initiation of the King
forests, community forests, farmlands and wet- Mahendra Trust for Nature Conservation
lands, with supportive policy regimes and plans (KMTNC).
would pave the way towards achieving landscape
level conservation. Biodiversity conservation at the Existing participatory wildlife conservation
landscape level is practiced in two models in Nepal. programs
The first one is the Minimum Dynamic Area Model,
and the second one is Network Model. A number of participatory conservation and de-
velopment programs have been implemented by
The Minimum Dynamic Area Model is, by and various organizations joining hands with the De-
large, the existing conservation practice in Nepal. partment of National Parks and Wildlife Con-
This model emphasizes the importance of main- servation (DNPWC) inside, outside and within
taining an existing habitat of an appropriate size the BZs of different PAs, which are described
and character, which is suitable for the mainte- below.
nance of biological diversity, by isolating it from
intensive land-use surroundings. The premise of Participatory Conservation Program (PCP)
this view is that the area available for nature re- Implemented by DNPWC with the support of
serve elements should be large enough to provide the United Nations Development Program
well functioning populations or communities. This (UNDP), the PCP has been extended until June
approach emphasizes a better protection for the 2006 to complete the targeted works, particu-
habitats that still exist in the PAs. This can be larly those relating to sustainability of the pro-
accomplished by establishing BZs in and around gram and mainstreaming of target groups and
those habitats. Nepal has made significant the poor living in the BZs. The PCP activities
progress towards the Minimum Dynamic Area have been launched in the BZs of seven PAs.
Model by declaring nine BZs in and around the The PCP has made considerable progress in in-
PAs. stitutionalizing the achievements and successes
of the Park People Program (PPP) (WWF
The second model is the Network Model, which Nepal, 2004). The major activities carried out
advocates the overall reduction of land use, pro- by PCP include providing policy and institutional
tection of large areas for nature conservation, and support to the Ministry of Forests and Soil Con-
creation of a network of corridors and connectiv- servation (MFSC)/DNPWC, strengthening com-
ity or other small landscape elements. Terai Arc munity-based organizations such as User Groups
Landscape (TAL) jointly implemented by (UGs) and User Committees (UCs), providing
DNPWC, DoF, and WWF in collaboration with training for the members of UG/UC, and sup-
the local community and other stakeholders, is an port for income generating opportunities. Other
example of this model as it is practiced in Nepal. notable achievements were the institutionaliza-
It has connected eleven PAs that spread across tion of the savings and credit scheme, the
the boundary of Nepal and India to ensure the Biodiversity Conservation Facility through coop-
conservation of globally significant biodiversity in eratives, conservation education and awareness
the long run. The most important corridors and programs, and support for UGs for self-initiative
linkages under the TAL Programme are Khata after social and environmental benefits. PCP also
Corridor, Basanta Corridor, Lamahi Bottleneck provided support for the preparation of park
and Dovan Bottleneck in the lowland of Nepal. management plans, resource profiles, habitat and
The other important activities conducted by the natural resource management and infrastructure
TAL Programme in a participatory manner are development (DNPWC, 2004).
centered on capacity building, community man-
agement of forest resources and improving the
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| Participatory Wildlife Conservation Initiatives in Nepal|


Terai Arc Landscape Program (TAL) drinking water schemes, and community health
In 2002, WWF Nepal began the Terai Arc Land- services are all part of the TAL program’s con-
scape (TAL) Program in collaboration with the servation efforts. This was met with the over-
MFSC, DNPWC, DoF, and local community- whelming participation and contribution from the
based organizations to “conserve the biodiversity, communities: local contribution (cash and kind) ex-
forests, soils and watersheds of the Terai and ceeded 40% on average of the investment needed
Churia hills in order to ensure the ecological, eco- in fiscal year 2003-2004 (WWF Nepal, 2004).
nomic and socio-cultural integrity of the region”
(WWF Nepal, 2004). It is based on the landscape HMGN and MFSC approved the Terai Arc Land-
approach of biodiversity conservation. The pro- scape (TAL) Strategic Plan (2004-2014) in 2004.
gram activities have been implemented in the PAs, The major achievements of the TAL Program
their buffer zones and outside the PAs. The goal during the fiscal year included the preparation of
of the program is to restore critical biological cor- the TAL Strategic Plan, restoration of biological
ridors and eliminate bottlenecks and provide link- corridors in critical areas, and partnership with
ages to 11 trans-border PAs in Nepal and India local, regional and international stakeholders for
spreading over 49,500 km2 to facilitate wildlife synergy to have the desired impact on biodiversity
passage, while addressing the issues of the liveli- conservation.
hood of the people in the region, especially those
living in the fringe areas (DNPWC, 2004). TAL is The Western Terai Landscape Complex Project
home to flagship species like the Asiatic wild el- was approved by GEF in 2003 and implemented
ephant, rhinoceros, and tiger. In Nepal, TAL en- to initiate conservation activities in the western
compasses 23,129 km2 of 14 districts, including part of TAL under the leadership of HMGN. A
75% of the remaining forests of lowland Nepal, working arrangement was signed between MFSC,
the Churia hills and four PAs. This landscape has HMGN, SNV Nepal and WWF NP for the imple-
the second largest population of rhinos and one of mentation of the Western Terai Landscape Build-
the highest densities of tiger populations in the ing Program (WTLB) in 2004. A Central Support
world. TAL covers three Ramsar sites and two Unit (CSU) for the WTLB Program, jointly imple-
World Heritage Sites. TAL was prioritized by mented by MFSC, SNV Nepal and WWF NP,
HMGN as a priority program in the 10th Plan was established at the premises of DoF (WWF
(2002-2007). Khata biological corridor is one of Nepal, 2004).
the crucial corridors in the TAL and provides a
vital linkage between Nepal’s RBNP and Northern Mountains Conservation Project
Katarniaghat Wildlife Sanctuary of India, espe- (NMCP)
cially for the movement of the Royal Bengal tiger The Northern Mountains Conservation Project
(Panthera tigris). A monitoring team of rangers (NMCP) is a joint initiative of WWF Nepal and
from the DFO at Bardia and the Research Of- DNPWC in Shey Phoksundo National Park
ficer from TAL Program confirmed that the Khata (SPNP) and its BZ areas in Dolpa and Mugu dis-
corridor was being used by Bengal tigers and Asian tricts. The objective of this integrated conserva-
wild elephants in 2003 (WWF Nepal, 2004). tion and development project is to facilitate the
local management of natural resources and im-
The program is directed to improve the livelihood prove the people’s living conditions, while safe-
of local communities to mitigate pressure on natu- guarding this region’s unique natural heritage.
ral resources. Major income generating activities NMCP has two components: 1) People and Plant
supported by the TAL Program were vegetable Initiative (PPI); and 2) Strengthened Actions for
farming, livestock, retail shops and collecting non- Governance and Utilization of Natural Resources
timber forest products (NTFP). Since unsustain- (SAGUN). PPI was launched in 1997 and
able extraction of fuel wood has caused major SAGUN in 2002. While the main objective of PPI
forest degradation, the TAL Program advocates is to address the issues of conservation and sus-
alternative energy like biogas and improved cook- tainable use of valuable plant resources, SAGUN
ing stoves. Community services like road gravel- is focused on strengthening the capacity of local
ling, maintenance of school buildings, irrigation and communities for governance in the sustainable
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| Participatory Wildlife Conservation Initiatives in Nepal|


utilization of natural resources (WWF Nepal, Annapurna Conservation Area Project
2004). (ACAP)
The Annapurna CA Project (ACAP) was offi-
Sagarmatha Community Agro-Forestry Project cially gazetted in 1992 and the KMTNC was given
(SCAFP) the responsibility of managing it for 10 years. The
The WWF Nepal Program has initiated SCAFP ACAP has evolved from an experimental Inte-
in Sagarmatha National Park (SNP). The SCAFP grated Conservation and Development Project to
is a multifaceted community-based conservation the largest PA (7,629 km2 ) in Nepal. The project
project, initiated in July 1996, to address the issue serves as a model throughout the Asia for inte-
of deforestation in the Sagarmatha region. grating public participation in biodiversity conser-
vation. It is based on a holistic and integrated ap-
One of the major achievements of the project is proach, considering local people as partners rather
the preparation of the BZ Management Plan for than beneficiaries (HMGN/MFSC, 2002).
SNP. The other notable activity was the prepara-
tion of operational plans and statutes of four com- New Models of Protection and Management
munity forest user groups. Regular project activi- of CAs
ties such as nursery management, plantation and NBS 2002 indicates that new models of PA man-
forest regeneration were undertaken by local agement have been developed in the highlands
CFUGs and Monastery Management Committees and mountains – in the Annapurna CA,
through financial grant support. Kanchenjunga CA and Manaslu CA – where the
army is not involved. It realized that the reliance
Kanchenjunga Conservation Area Project on the army alone for protecting PAs should be
(KCAP) reduced given the high cost of mobilizing the army.
DNPWC implemented the Kangchenjunga Con- The DNPWC implemented the Makalu-Barun
servation Area Project (KCAP) in March 1998 National Park and Conservation Area Project to
with the technical and financial support of the demonstrate a new model for conservation. The
WWF Nepal Program to conserve the natural project gives strict protection to the biodiversity
resources of the region and promote sustainable of the park while developing sustainable use ac-
development. A major achievement of the past tivities for the people who reside in the surround-
year was HMGN’s decision to hand over man- ing CA. Makalu-Barun NP is the Nepal’s first
agement responsibility of the conservation area national park east of Mount Everest NP to be
to local communities. This conforms to the managed without the help of the army. The local
government’s recent policy of giving management people who manage the resources are the real
responsibility of selected protected areas to NGOs guardians. Recently, the rights and responsibili-
and local communities. The aim is to share the ties to manage Sagarmatha NP, Shey Phoksundo
benefits generated by protected areas with the NP and Sivapuri NP have also been given to
local people and to improve their socio-economic KMTNC (HMGN/MFSC, 2002).
conditions. At present, the process of formally
handing over management responsibility to Tourism for Rural Poverty Alleviation Program
KCAMC is underway. The KCA communities (TRPAP)
are very enthusiastic and committed toward this TRPAP is implemented under the Ministry of
initiative. The first ever community management Culture, Tourism and Civil Aviation (MoCTCA)
of a conservation area serves as an excellent with the technical and financial support of UNDP,
example of conservation by the local people. SNV and DFID. The goal of TRPAP is to con-
These achievements are the result not only of tribute to the poverty alleviation objectives of the
community support, but also of strong local part- government. The project aims to accomplish the
nerships such as with the District Development task through review and formulation of policy and
Community-Taplejung and Decentralized Finance strategic planning for sustainable tourism
Development Project (WWF Nepal, 2004). (DNPWC, 2004).

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CARE Nepal: The Buffer Zone Development Wildlife farming, reproduction and research
Project policy
The BZ Development Project, implemented with The Cabinet approved the “Wildlife farming, re-
the support of the European Union and DANIDA, production and research policy” in –execution 2060
is part of a broader integrated conservation and on 28 August, 2003.
development program. DNPWC and CARE
Nepal jointly implemented the Project in the BZ The protected species that may be permitted for
of RBNP with the objective of improving the live- farming include gharial crocodile (Gavialis
lihoods of local people of the BZ. The project suc- gangeticus), blackbuck (Antilope cervicapra),
cessfully handed over a total of 8,957.75 ha of impeyan pheasant (Lophophorus impejanus),
forest to 24 Buffer Zone Community Forest User crimson horned pheasant (Tragopan satyra) and
Groups (BZCFUGs), benefiting 7,782 households. cheer pheasant (Catreus wallichi). Other spe-
The project successfully completed its project cies included in the list are barking deer, spotted
cycle in July 2004. SAGUN has taken over some deer, sambar, rhesus monkey, hog deer, wild boar,
of the activities of BZDP in RBNP and SPNP snakes and all other bird species.
(DNPWC, 2004).
The seed animals for farming can be obtained from
Emerging participatory conservation initia- the DNPWC and the permission fee ranges from
tives five thousand to forty thousand rupees. Permis-
sion for the farming of protected species could be
Following the success of the program’s implemen- obtained from the MFSC, while DNPWC has been
tation through the participation of local commu- authorized to issue permission for other species
nity members, HMGN has approved new policies of wildlife.
regarding wildlife conservation through the par-
ticipatory approach. The NPWC Act 1973 was Policy on the management of domesticated el-
amended for the fifth time in 2004. The new ephants
amendment includes provisions for wildlife farm- HMGN passed a policy for the effective man-
ing, reproduction and research; elephant domesti- agement of domesticated elephants in the coun-
cation; detailed specifications of the provision of try on 16 September 2003. The policy in-execu-
buffer zones and specifications relating to the ex- tion aims to improve the breeding of domesticated
change of wildlife species with other countries. elephants by improving the food quality and hy-
Following are the new policies recently approved gienic conditions of the Hattisars (camps for do-
by the government. mesticated elephants and their handlers) and im-
proving the health care system of the elephants.
New policy on protected area management It also aims to register all domesticated elephants
HMGN has approved a policy in-execution re- and reduce their impact in protected areas.
garding the handing over of management respon-
sibilities of protected areas to interested INGOs/ Out of the total 184 domestic elephants in Nepal,
NGOs or local communities. The objective is to 81 are owned by the government. The govern-
ensure maximum participation of local people in ment-owned elephants are used for eco-tourism,
sharing benefits from conservation activities, while patrolling for poachers, wildlife monitoring, cap-
contributing to biodiversity conservation and en- turing problem animals, evacuating trapped ani-
vironmental protection. The decision of HMGN mals and wildlife research.
to hand over the management responsibility is in
conformity with the Tenth Plan (2002-2007) and Conclusion
ensuring local people’s access to natural resources
and equitable distribution of benefits. The conservation policy of Nepal has evolved from
an early emphasis on species preservation and
research with strict law enforcement practices to
a more conciliatory and participatory approach. It

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| Participatory Wildlife Conservation Initiatives in Nepal|


(con’t from p.16) that people’s participation is essential to sustain-
able conservation. It is crucial to win the support
embarked upon a modern era of wildlife conser-
and stewardship of the local people in wildlife con-
vation with the enactment of the National Parks
servation by implementing conservation programs
and Wildlife Conservation Act in 1973. His
along with community development activities
Majesty’s Government of Nepal has approved
aimed at improving their socio-economic condi-
three new policies, namely: 1) wildlife farming,
tions.
reproduction and research policy; 2) policy on
management of domesticated elephants; and 3)
References
the new policy on protected area management.
These policies have placed local communities in
Amatya, S. M. and K. L. Shrestha. 2002. Nepal
the center of the conservation program. Chang-
Forestry Handbook. FAO, Italy, Rome.
ing policy into practice is a very sensitive task and
DNPWC. 2004. Annual Report. His Majesty’s
guidelines related to the new policies should be
Government of Nepal.
prepared soon for effective wildlife management
WWF Nepal. 2004. Annual Report. World Wild-
practices in collaboration with local communities.
life Fund Nepal Program.
HMGN/MFSC. 2002. Nepal Biodiversity Strat-
A number of community-based participatory pro-
egy. His Majesty’s Government of Nepal,
grams have been implemented inside, outside and
Ministry of Forests and Soil Conservation.
in the BZs of PAs. The Buffer Zone Manage-
NPWC Act. 1973. National Park and Wildlife
ment Model and the Landscape Approach to
Conservation Act 1973. His Majesty’s Gov-
biodiversity conservation are successful ap-
ernment of Nepal.
proaches in the context of Nepal. Both approaches
Sharma, U. R. 1999. Country Paper – Nepal.
emphasize people’s participation in program de-
In: Oli, K.P. (ed.) Collaborative Manage-
sign and implementation. The landscape approach
ment of Protected Areas in the Asian Re-
to biodiversity conservation aims for representa-
gion. IUCN Nepal.
tion of all distinct natural communities, mainte-
Tenth Plan. 2002. Tenth Five Year Plan (2002-
nance of ecological and evolutionary processes
2007). His Majesty’s Government of Nepal.
that create and sustain biodiversity, maintenance
of viable populations of species, ecosystem resil-
ience to large-scale disturbances and long-term
Authors’ addresses: Gandhiv Kafle, Institute of
changes and promotion of sustainable livelihoods.
Forestry, P. O. Box 203, Pokhara, Nepal,
The BZ Management approach aims at making
Email: gandhivkafle@hotmail.com; Prof.
local communities self-reliant in forest products
Mohan Krishna Balla, Institute of Forestry, P.
by initiating community forests and reducing bi-
O. Box. 43, Pokhara, Nepal.
otic pressure in the core areas. Experiences show

Table 1: Declared Buffer Zones (BZ) of parks and reserves


Protected Areas Year gazetted BZ area (km 2) VDCs within BZ Estimated
population in BZ
Royal Chitwan NP 1996 750 37 242,000
Royal Bardia NP 1996 328 17 69,000
Langtang NP 1998 420 26 NA
Shey Phoksundo NP 1998 449 8 9,185
Makalu-Barun NP 1999 830 12 32,000
Sagarmatha NP 2002 275 3 13,000
Koshi Tappu WR 2004 173 13 172,000
Royal Suklaphanta WR 2004 243.5 11 74,000
Parsa WR 2005 298 NA NA
Total 3,766.5 127 611,185
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