36
WILDLIFE MANAGEMENT SERIES P R O B L E M A N I M A L REPORTING
WILDLIFE MANAGEMENT SERIES
P R O B L E M
A N I M A L
R EPORT ING
1
P R O B L E M
A N I M A L
R EPORT ING
2
These guideline booklets are based on field experience and original research reports which are available from the WWFProgramme Office in Harare. WWF wishes to acknowledge the important contribution made by the Rural DistrictCouncils and their constituent communities in the development of the series.
The Norwegian Agency for Development Cooperation (NORAD) is funding the WWF Resource Management Supportto CAMPFIRE Project which produced this guideline. The work undertaken here is part of a collaborative programmewith the Department of National Parks and Wildlife Management.
Editing, illustration and design: Action
© WWF
Published in 1997 by the WWF-World Wide Fund for Nature (formerly World Wildlife Fund) Programme Office,Zimbabwe, Zimbabwe Trust and Safari Club International. Any reproduction in full or in part of this publication mustmention the title and credit the above mentioned publisher as the copyright owner. November 1997. 1986 WWF symbol copyright. WWF Registered Trademark.
INTRODUCTION
Problem animal management and CAMPFIRE....................................................................
CHAPTER 1
Problem animal reporting issues ............................................................................................
CHAPTER 2
Setting up a district problem animal reporting system ......................................................
CHAPTER 3
Using problem animal information:
How it helped Gokwe...........................................................................................23
17
9
5
3
CONTENTS
4
Villagers discussing problemanimal issues.
Background to Problem Animal ManagementAnyone who has attended a CAMPFIRE meeting knows thatit isn’t long before someone starts talking about problemanimals. As a result of the CAMPFIRE programme, peoplenow expect rural district councils (RDC's) to help themmanage and benefit from wildlife. This includes making surethat no-one suffers severe crop or livestock losses as a result ofcommunities deciding to manage wild animals in their district.
So RDC's, rather than the Department of National Parks andWildlife Management (DNPWM), are now expected to takemeasures to reduce or prevent damage caused by problemanimals. Until recently though, rural district councils did nothave enough information about problem animals on which tobase their decisions.
In the past, shooting to scare away or kill was the only form ofcontrol. But this was often ineffective. Often the wrong animalwas shot or the problem animal returned. And killing ananimal meant a possible loss of earnings later through forexample a safari hunt.
Problem animal management (PAM), or the measures whichmay be taken to reduce the disruption to daily living causedby animals, is not an instant cure. It can however lower theamount of crop raiding and bring higher revenue to a
community. But it requires rural district councils to makechoices about how they deal with problem animals so that thecosts are minimised while the benefits are maintained.
This booklet and others in the series aim to fill in some of thegaps in our knowledge about managing problem animals. Theinformation they contain is taken from the experiences ofcouncils who are trying to cut crop and livestock losses byintroducing problem animal management in their wards.
Developing a policy on problem animal managementEvery rural district council should implement a problem ani-mal management policy, monitored by a separate problem ani-mal control (PAC) committee if necessary. This policy shouldcome about after consultation and discussion with members ofthe community so that it is clearly understood and accepted byeveryone.
The policy should explain the mix of measures which the dis-trict has introduced, the reasons for them and their hoped foreffects. By monitoring the measures introduced for 1-2 years,it should be possible for rural district councils to quantify thebenefits that have occurred.
If control shooting to scare or kill is a part of the measuresintroduced, RDC’s should draw up a problem animal control
5
INTRODUCTION
PROBLEM ANIMAL MANAGEMENT and CAMPFIRE
6
Dis
adva
ntag
es
• u
ses
som
e w
ildlif
ere
venu
e
• n
one
• c
onst
rain
ed b
y hu
nter
’slic
ense
reg
ulat
ions
• r
eact
ion
tim
e ca
n be
slo
w
• r
equi
res
a Pr
oble
mA
nim
al R
epor
ting
(PA
R)
syst
em to
be
in p
lace
• d
oes
not d
eal w
ith
prob
lem
ani
mal
s ou
tsid
eth
e pe
riod
cho
sen
• s
ince
PA
C a
nim
als
have
a ‘s
afar
i’ va
lue,
the
wro
ngan
imal
may
be
shot
,m
akin
g it
like
ly th
at th
eov
eral
l quo
ta is
exc
eed
edor
abu
sed
• s
afar
i ope
rato
r us
es a
clie
nt to
sho
ot th
epr
oble
m a
nim
al; t
hecl
ient
pay
s le
ss b
ecau
sehe
has
no
choi
ce in
wha
tan
imal
is s
hot,
whe
rean
d w
hen.
• a
nim
als
get u
sed
to it
•
req
uire
s tr
aine
d p
eopl
e •
cos
tly
and
take
s ti
me
1 Pr
oble
m A
nim
alRe
port
ing
(PA
R)in
clud
ing
trai
ning
(sub
ject
of t
his
book
let)
2 Es
tabl
ishi
ng a
PA
Cco
ntra
ct b
etw
een
the
RDC
and
the
hunt
ers
2a U
sing
pro
fess
iona
lgu
ide
trai
nees
for
cont
rol w
ork
3 D
ivid
ing
the
PAC
quot
abe
twee
n th
e w
orst
affe
cted
are
as
4 Re
stric
ting
PAC
activ
ities
for
elep
hant
toa
part
icul
ar s
easo
n(w
et s
easo
n PA
C du
ring
the
crop
gro
win
gse
ason
)
5 M
arke
ting
wet
sea
son
hunt
s by
saf
ari
oper
ator
s(s
hoot
ing
prob
lem
elep
hant
s us
ing
hunt
ing
clie
nts
durin
g th
e w
etse
ason
)
6 D
istu
rban
ce s
hoot
ing
(sho
otin
g to
sca
reaw
ay)
Adv
anta
ges
• s
impl
e an
d c
heap
to r
un•
pro
vid
es in
form
atio
n fo
ref
fect
ive
man
agem
ent o
fpr
oble
m a
nim
als
• e
mpl
oys
loca
l peo
ple
• s
ets
up s
peci
fic
guid
elin
es a
bout
who
auth
oris
es P
AC
oper
atio
ns a
nd h
ow th
eyar
e ca
rrie
d o
ut•
can
be
used
as
the
basi
sfo
r ex
plai
ning
to th
eco
mm
unit
y ab
out P
AC
acti
viti
es .
• c
heap
er a
nd m
ore
wid
ely
avai
labl
e so
urce
of
man
pow
er fo
r PA
C
• fa
irer
sys
tem
for
com
plai
nant
s
• R
DC
’s c
an p
lan
whe
re to
plac
e sc
outs
and
equi
pmen
t in
adva
nce
• e
valu
atio
n of
PA
C c
ases
is e
asie
r•
get
s ri
d o
f con
fusi
onbe
twee
n tr
ophy
and
PAC
ani
mal
s•
quo
ta a
buse
mor
ed
iffi
cult
, as
mon
itor
ing
of P
AC
eas
ier.
• s
ince
pro
blem
ani
mal
sw
ill a
lso
be ‘s
afar
ian
imal
s’ s
hoot
ing
them
will
ear
n th
e d
istr
ict
mor
e m
oney
. Thi
sre
venu
e th
ough
, will
be
half
or
less
than
that
from
nor
mal
hun
ting
• d
oes
not k
ill th
e an
imal
and
red
uce
the
wild
life
reso
urce
Impo
rtan
t poi
nts
• e
ssen
tial
in th
e lo
ng-t
erm
• R
DC
’s o
pera
ting
PA
Rsy
stem
s m
ay fi
nd th
atth
e be
nefi
ts o
utw
eigh
the
cost
s of
its
intr
oduc
tion
• p
rovi
des
acc
ount
abili
tyfo
r th
e us
e of
the
quot
a•
the
sam
e co
ntra
ct c
anin
clud
e w
et s
easo
n sa
fari
hunt
ing
of p
robl
eman
imal
s
• if
out
sid
ers
brou
ght i
n, it
may
lead
to c
onfl
ict w
ith
resi
den
t saf
ari o
pera
tor
• n
ot s
een
as d
evel
opin
glo
cal c
apac
ity
• li
mit
ing
PAC
act
ivit
ies
toa
set p
erio
d o
f tim
ere
duc
es c
osts
• R
DC
's s
houl
d b
e fl
exib
leab
out w
hen
this
per
iod
end
s, s
ince
it d
epen
ds
onw
hen
the
rain
y se
ason
fini
shes
.
• p
art o
f the
quo
ta m
ust b
eal
loca
ted
to th
e PA
Cse
ason
onl
y•
the
quot
a sh
ould
be
dis
trib
uted
fair
ly a
s fa
ras
pos
sibl
e•
saf
ari o
pera
tor
has
tom
arke
t a w
et s
easo
nhu
nt w
hich
may
be
dif
ficu
lt th
eref
ore
a le
gal
cont
ract
sho
uld
be
dra
wn
up to
avo
idco
nflic
t
• m
ay b
e d
ange
rous
• c
ostl
y an
d in
effi
cien
t•
man
y el
epha
nts
are
nolo
nger
afr
aid
of
det
erre
nts
such
as
nois
e,fi
re o
r lig
hts
PRO
BLEM
AN
IMA
L M
AN
AG
EMEN
T O
PTIO
NS
Sixt
een
diffe
rent
app
roac
hes
to m
anag
ing
prob
lem
ani
mal
s ar
e ou
tline
d be
low
. The
y ar
e lis
ted
in a
logi
cal
orde
r in
whi
ch a
dis
tric
t may
tac
kle
prob
lem
ani
mal
man
agem
ent.
Whi
ch a
ppro
ache
s a
dist
rict f
inal
ly d
ecid
esto
use
will
dep
end
on it
s ow
n ci
rcum
stan
ces
and
may
be
diffe
rent
to th
ose
chos
en b
y an
othe
r di
stric
t.
7
• r
equi
re s
kille
d o
pera
tors
as d
iffi
cult
to a
pply
• a
nim
als
may
get
use
d to
them
• s
peci
al s
kills
req
uire
d•
ani
mal
may
bec
ome
apr
oble
m a
t the
new
sit
e•
ani
mal
may
ret
urn
toor
igin
al a
rea.
• w
rong
ani
mal
oft
en s
hot
• q
uota
s ar
e us
ually
for
the
who
le d
istr
ict a
nd n
otd
ivid
ed in
to a
reas
•
quo
tas
are
not r
estr
icte
dto
a c
erta
in p
art o
f the
year
mak
ing
them
expe
nsiv
e to
ad
min
iste
r•
not
an
appr
opri
ate
long
term
mea
sure
as
it d
oes
not s
olve
the
prob
lem
whi
ch m
ay r
e-em
erge
else
whe
re
• ta
kes
tim
e
• le
d to
wid
espr
ead
chea
ting
on
clai
ms
• e
xpen
sive
and
slo
w to
adm
inis
ter
• fa
ir a
sses
smen
t of
dam
age
ofte
n im
poss
ible
• la
ck o
f fun
ds
at d
istr
ict t
opa
y ou
t •
doe
s no
t att
empt
to s
olve
the
caus
e of
the
prob
lem
• u
nles
s d
istr
ict w
illin
g to
enfo
rce
the
land
-use
pla
npa
rtic
ular
ly in
rel
atio
n to
stop
ping
the
imm
igra
tion
of s
ettl
ers
into
are
as o
f wild
life,
itm
ay n
ot w
ork
• m
ay b
e co
stly
• r
equi
res
regu
lar
mai
nten
ance
, •
not
eff
ecti
ve a
gain
stca
rniv
ores
or
othe
r sm
all
anim
als
whi
ch m
ay b
e‘u
nsee
n’ b
ut r
espo
nsib
lefo
r m
ost
dam
age
tocr
ops.
7 U
sing
non
-fata
lde
terr
ents
8 Im
mob
ilisa
tion
and
tran
sloc
atio
n of
the
prob
lem
ani
mal
9 D
estr
oyin
g(s
hoot
ing
to k
ill)
10 P
ay o
ut th
e PA
Cdi
vide
nd p
rom
ptly
to
thos
e af
fect
ed
11 C
ash
com
pens
atio
npa
ymen
ts
12 S
ettle
men
t pla
nnin
g
13 E
lect
ric fe
ncin
g
• a
nim
al n
ot k
illed
• r
emov
es th
e pr
oble
man
d d
oes
not k
ill th
ean
imal
• v
ery
spec
ific
• in
the
shor
t ter
m it
par
tly
sati
sfie
s th
e pe
rson
or
com
mun
ity
who
se c
rops
have
bee
n d
amag
ed•
pro
vid
es li
mit
ed b
enef
its
eg m
eat t
o so
me
peop
le,
but t
he o
vera
ll va
lue
ofth
e an
imal
. esp
ecia
llyel
epha
nt, i
s re
duc
ed.
• e
stab
lishe
s a
conn
ecti
onbe
twee
n th
e pr
oble
man
d th
e re
spon
se
• c
omm
unit
ies
link
wild
life
wit
h th
eco
mpe
nsat
ion
whi
chre
duc
es g
riev
ance
s
• m
inim
ises
long
-ter
mco
nflic
t•
can
pro
vid
e th
e ba
sis
for
villa
ge c
omm
unit
y an
dd
evel
opm
ent p
lans
• a
n id
eal l
ong-
term
solu
tion
whi
chco
mm
unit
ies
may
wis
hto
wor
k to
war
d.
• v
ery
effe
ctiv
e ag
ains
tla
rger
ani
mal
s su
ch a
sel
epha
nt a
nd b
uffa
lo•
vis
ible
bar
rier
whi
chco
mm
unit
y ca
n se
e
• te
chno
logy
sti
lld
evel
opin
g. M
ay b
eus
eful
in fu
ture
• a
ppro
pria
te fo
r a
nim
als
inju
red
thro
ugh
snar
ing
• th
is is
usu
ally
wor
thw
hile
onl
y fo
r a
valu
able
car
nivo
re
• p
art o
f the
ove
rall
quot
am
ust b
e al
loca
ted
toPA
C b
y sh
ooti
ng•
str
ict c
ontr
ol o
f the
quo
tais
nee
ded
•
DN
PWM
gui
del
ines
stat
e th
at a
nim
als
shot
thro
ugh
a PA
C q
uota
mus
t be:
• a
ctua
lly r
espo
nsib
lefo
r th
e pr
oble
m•
wit
hin
1000
m o
f the
fiel
ds
if c
rop-
raid
ing
• a
utho
rise
d b
y R
DC
and
rep
orte
d o
n by
the
prob
lem
ani
mal
repo
rter
• b
urea
ucra
tic
del
ays
inpa
ymen
ts c
reat
e ill
feel
ing
• p
aym
ents
to in
div
idua
lsha
ve b
een
trie
d in
som
ed
istr
icts
but
hav
e no
tw
orke
d
• m
ay b
e ap
plic
able
inis
olat
ed o
r sp
ecia
lci
rcum
stan
ces
• c
ompe
nsat
ion
is n
otad
vise
d, b
ut if
giv
ensh
ould
con
form
toC
AM
PFIR
E p
rinc
iple
s
• r
equi
res
educ
atio
n an
dtr
aini
ng in
ord
er fo
r th
eco
mm
unit
y to
und
erst
and
and
part
icip
ate
• in
volv
es u
sing
PA
Rin
form
atio
n an
d o
ther
econ
omic
and
soc
ial d
ata
to d
evel
op p
lann
edla
nd-u
se a
reas
for
sett
lem
ent,
agri
cult
ure
and
wild
life
• r
equi
res
care
ful p
lann
ing
base
d o
n ac
cura
tein
form
atio
n•
long
term
com
mit
men
tto
mai
nten
ance
nee
ded
• fe
ncin
g sh
ould
be
intr
oduc
ed a
s a
par
t of
war
d la
nd u
se p
lann
ing
contract with the organisation(s) that will react to problemanimal incidents when requested to do so by the responsiblecouncil wildlife official. The contract should state precisely thechain of responsibility and conditions governing problemanimal control and be available for anyone in the district tosee. A rural district council will need to establish similarprocedures even if it decides to set up its own problem animalcontrol unit.
There is no simple way of getting rid of problem animals suchas elephant. If we did , we would be removing the animalwhich is a community’s most valuable asset. Since 64% of allCAMPFIRE cash is earned from elephants, if there were noelephants in a ward, the potential earnings of the ward wouldbe greatly reduced.
The problems caused by animals raiding crops and killinglivestock can never be completely removed. What a councilpolicy should aim for is to introduce measures which willreduce the problem to a level thought acceptable by thecommunity. Before introducing any form of problem animalmanagement, councils should bear in mind that the benefitsbrought to everyone from these measures should alwaysoutweigh the costs of introducing them.
8
With wise management, problemanimals can be turned into anasset for the community.
About problem animal reportingProblem animal reporting (PAR) is a very important part ofproblem animal management. An efficient reporting systemcan provide information about the animals and cropsinvolved, where and when the damage occurs and howserious it is. Councils need this information in order to:
• develop a policy on problem animal managementacceptable to people living in the district
• direct resources, including people and money, to wherethey are most needed
• develop a fair system in the form of meat or cash for anydamage caused, if compensation is to be applied
PAR systems have both costs and benefits which councils need to consider. These include:
Most councils that have introduced problem animal reportinghave found that the information is useful in allowing more ofthe quota to be shot by clients and less on problem animalcontrol. Since quotas in a district are fixed, this has increasedrevenue as more elephant are available for safari hunting.
9
CHAPTER 1
BACKGROUND TO PROBLEM ANIMAL REPORTING
COSTS
• monthly payments to
a part-time problem
animal reporter in
each ward
• training of reporters
• transport and
equipment for reporters
BENEFITS
• information allowing
resources to be used
efficiently
• increased revenue
animals responsible
for serious damage
only are killed 31989/90Before PAR
1991/92After PAR
NUMBER OF PROBLEM ELEPHANTS KILLED IN GOKWE
1990/91PAR Begins
44 11
Problem Animal Reporting issues When setting up a district problem animal reporting system,the district CAMPFIRE or wildlife co-ordinator shouldarrange meetings so that members of the community candiscuss and decide on the following six major issues.
ISSUE 1.How will the district identify“serious” problem animalincidents?
Although problem animalreporters should investigate all theincidents reported to them, not allthese incidents will require follow-up action. Some will be moreserious than others. To help areporter decide which is a ‘serious’and which is a ‘minor’ incident,guidance is required. Each district
should draw up a set of reporting guidelines and ensure thatthese are understood and agreed to by the community andmade available to guide the reporters, council and safarioperators.
Experience in Gokwe has shown that ‘serious’ incidentsrequiring follow-up action may include:
• a person being killed• a dangerous or wounded animal remaining close to
where people live• crop or stock raiding occurring at the same place every
day• an entire standing crop eaten in one household or village
area • any cattle killed, for example by a lion • the destruction of fixed property such as a grain store
Districts may wish to include others and discuss and changetheir list from time to time.
Serious’ incidents should be quickly notified to the DistrictWildlife Management Authority or its appointee, who willthen immediately request the current Safari Operator, PACcontractor, or National Parks to react.
Reports of problem animal activity investigated by thereporter and found not to require any further follow-up, maybe called 'minor'. Reports of these ‘minor’ incidents shouldstill be sent to the rural district council which will file themfor reference.
10
SERIOUS MINOR
ISSUE 2.Which animals will beincluded in “serious andnotifiable” incidents ?
Which of the animals shownhere are a problem? Whichanimals should the districtcouncil take responsibility formanaging and which animalsshould farmers try to controlby themselves? These areimportant questions whichneed discussing so that thecouncil can provide clear
guidelines for the community. Many people believe that most of the wild animals in theirarea are a problem, but this is not really true. Some animals:
• do not cause damage to crops or threaten human life• cause only minor damage• cannot be easily controlled , so requesting a reaction
will not solve the problem.
Extensive damage is sometimes caused by animals which arenot easy to deal with. Baboons, for example get everywhere,while springhares are difficult to find. Rats, can be a problembecause they need specialised methods of control. Otherspecies such as mice and locusts may cause large crop losses
over a long period of time but are difficult to see. If suchincidents are notified to the district as 'serious' by the reporter,then time and energy may be wasted investigating them. Thismay divert attention away from those incidents which are‘serious’ and which can be dealt with.
Most ‘serious’ incidents are caused by elephant, with damageby lion and buffalo next in importance. If district councilefforts in controlling the most serious crop or stock raiding areto be directed at the most affected farmers, then incidentsinvolving elephant, lion or buffalo should be given thehighest priority.
However a reporter should still record all the incidents in adistrict in order to build up a complete picture of the problemanimal situation. After two or three seasons enoughinformation will be available to help councils:
• plan settlement and wildlife areas • decide if fences are needed and where they should go• identify corridors of animal movement• plan settlement expansion• site artificial water points.
11
ISSUE 3.Which areas in the District require ‘priority’ or specialattention by the problem animal control team?
It is not possible for a problem animal control team to beeverywhere at once. There are not enough people or vehiclesto do this. So it is more effective to identify those areas whereproblem animal incidents are likely to occur and focusattention on these. Problem animal reporting provides thisinformation.
Where and how often incidents with problem animals occur isinfluenced by three main factors:
• the amount of wildland in a ward• the closeness to or frontage with a National Park or
Safari Area• the amount of wildland in nearby districts
In addition other factors more difficult to estimate have aneffect. These include:
• the favoured local wildlife habitats of certain animals• the closeness of animal habitats to human settlements
and cultivation
In general though two kinds of wards are most at risk.• wards which front onto a National Park or Safari Area
and have a large amount of cultivated land; • wards which contain a high percentage of wildland
within them.
12
ISSUE 4. When do most problem animalincidents take place?
If we try and address problem animalactivity throughout the year, it will not be cost-effective.Finding out when most of the incidents take place is betterbecause it will help us to focus our efforts.
Crop raiding coincides with farming activities during therains. Crop raiding outside this season is usually minor. Whilethe overall season is from January to April/May it seems thatserious incidents peak in February/March. This may bebecause as wild grasses dry out, elephant switch to eatingcrops. They also like crops because they are a concentratedsource of food.
Generally, stock raiding is not seasonal and is difficult topredict where it may take place. It has not been a majorproblem and can be dealt with by the council provided it iswithin the hunting quota. If it does become a problem outsidethe normal hunting season it can be dealt with in the sameway as crop raiding.
ISSUE 5. Which crops will yougive priority to when requesting a PAC reaction?
While it is likely that most districts will give priority to maize,establishing a priority list of crops will again help to focusreactions on those crops which the community decides are themost important.
13
ISSUE 6. How can you promote within the community the idea thatwildlife has a value and a place in local land use?
A process of community discussion about problem animals isvery important in itself as a means of allowing people toexpress their frustrations and reduce the issue to a manageablelevel.
However without a community appreciation that wild animalsare of value, it will be difficult to discriminate in favour of‘serious’ incidents and focus problem animal managementefforts effectively. All incidents will be seen as equally ‘serious’and requiring a reaction to them.
For those districts undertaking CAMPFIRE projects, thecommunity may already value wildlife. It may already belinked in their minds to the payment of individual cashdividends or to community development projects.
After all six issues have been discussed by interested partiesincluding PAR candidates, councillors, chiefs, counciladministration officials, wildlife management committeemembers and concerned individuals, recommendations shouldbe made. These can be passed through the CAMPFIRE or wildlifeco-ordinator for the district board of management to incorporateinto its standard operating procedures.
14
Trophy fee values in US $
$10 000
$1 500
$5 000
15
16
Hiring problem animal reportersProblem animal reporting can begin by using villagersnominated by the Ward Wildlife Management Committee(WWMC). One or two people per ward may be neededdepending on its size. Problem animal reporters may be paidan allowance for their services and should be responsible tothe WWMC who recruits, supervises and employs them on apart-time basis. Reporters should perform the following tasks:
• investigate all problem animal incidents• judge the seriousness of the damage • report on crop/stock damage to the council
Although training will be given to reporters, it will help ifthey can already read and write simple English, use a map andpossess a wrist watch. Reporters also need to be fit and able towork with local residents.
Stages in problem animal reportingProblem animal reporting is most effective when everyoneinvolved understands their role and responsibilities. Thestages of reporting shown on the next page should bediscussed first and then followed.
A request for a reaction does not always mean that the animalwill be killed. It may turn out to be a false report or theproblem animal control agent may be able to move the animalaway without harming it.
Remember, responsibility for control of the overall districtquota of which problem animals are a part, rests with theRural District Council. That is why no reaction to reportsshould be made without district authority, unless of courseit is an emergency where a person may have been killedor injured.
17
CHAPTER 2
SETTING UP A Problem Animal Reporting SYSTEM
18
2 Re
port
er in
vest
igat
es a
nd r
epor
tsTh
e re
porte
r m
ust g
o to
the
plac
e of
the
inci
dent
, inv
estig
ate
and
accu
rate
lyco
mpl
ete
a re
port
form
(For
a s
peci
men
cop
y of
the
PAR
F1 fo
rm s
ee A
ppen
dix
1).
3Re
port
er d
ecid
es to
req
uest
or
not t
o re
ques
t act
ion
If th
e in
cide
nt is
ser
ious
and
requ
ires
a re
actio
n th
en th
is re
port
shou
ld im
med
iate
lybe
sen
t to
the
CA
MPF
IRE
/Wild
life
co-o
rdin
ator
or h
is re
pres
enta
tive
at th
e D
istric
tC
ounc
il O
ffice
. If t
he in
cide
nt is
not
sev
ere,
the
repo
rter r
etai
ns th
e re
port
form
and
does
not
repo
rt th
e in
cide
nt a
s on
e re
quiri
ng a
ctio
n.Th
ese
non-
serio
us re
ports
are
colle
cted
late
r by
the
distr
ict C
AM
PFIR
E or
wild
life
co-o
rdin
ator
.
1 Co
mpl
aina
nt r
epor
ts in
cide
nt to
the
prob
lem
ani
mal
rep
orte
r or
re
leva
nt p
erso
n in
the
wild
life
com
mitt
ee.
5Pr
oble
m a
nim
al c
ontro
l age
nt in
vest
igat
esTh
e co
ntro
l age
nt s
houl
d in
vesti
gate
the
inci
dent
as
soon
as
poss
ible
and
take
the
appr
opria
te a
ctio
n. H
e sh
ould
take
a c
opy
of th
e re
actio
n re
ques
t with
him
and
be
acco
mpa
nied
by
the
repo
rter.
Toge
ther
they
sho
uld
asse
ss th
e in
cide
nt a
nd d
ecid
eon
a c
ours
e of
act
ion.
Thi
s w
ill h
elp
to s
how
the
com
mun
ity th
at th
ere
is a
dire
ctlin
k be
twee
n th
e re
port
and
the
reac
tion.
The
PA
C a
gent
sho
uld
repo
rt ba
ck to
the
distr
ict c
ounc
il by
com
plet
ing
the
othe
r sid
e of
the
PAC
F1
form
(App
endi
x 3)
.
4 Se
rious
rep
ort r
ecei
ved
by D
istr
ict a
nd p
asse
d to
pro
blem
ani
mal
co
ntro
l age
ntA
t the
Dis
trict
offi
ce, w
hen
a se
rious
rep
ort i
s re
ceiv
ed fr
om a
rep
orte
r, a
Pro
blem
Ani
mal
Rea
ctio
n Re
ques
t for
m P
AC
F1
( for
a s
peci
men
form
see
App
endi
x 2
)sh
ould
be
com
plet
ed, a
ttach
ed to
a d
uplic
ate
of th
e or
igin
al r
epor
t and
pas
sed
onto
the
prob
lem
ani
mal
con
trol a
gent
who
will
inve
stiga
te th
e in
cide
nt.
6 A
naly
sis
of r
epor
tsRe
ports
abo
ut s
erio
us a
nd m
inor
inci
dent
s sh
ould
be
anal
ysed
and
sha
red
by th
edi
stric
t with
the
war
d w
ildlif
e co
mm
ittee
and
the
com
mun
ities
it c
once
rns.
STA
GES
IN P
ROBL
EM A
NIM
AL
REPO
RTIN
G
19
Training needs of Problem Animal ReportersBefore undertaking any investigations, reporters shouldundergo a training course in order to make sure they have therequired knowledge and skills. The course should include:
• training in animal damage assessment. Every time anincident is investigated by a reporter, a report formshould be completed. Every reporter needs to undergo atraining course so that he or she will be able toaccurately complete this form. To complete this formreporters must be able to read and understand it, and beable to write clearly. During this training they willrequire practice at measuring animal damage so thatthey can compare their damage estimate with that of anexperienced reporter. Ideally this training should takeplace during the rains and be given by someoneexperienced in assessing problem animal damage.
• training in map reading. The best way to direct a controlagent to an incident is to provide him with the name ofthe ward and village and the location of the incident on amap using a six-figure grid reference . This figure, whengiven accurately will take the agent close enough to theincident to be able to find it.
• training in navigation. To help reporters recognise wherean incident is located on a map, they will need practicein navigating or getting to a location. This will involvethem in estimating accurately the distance they havetravelled, knowing the direction they have travelled inand being able to recognise features such as rivers,buildings and hills along the way. Many of these will bemarked on the map and so by referring to it, the reporterwill know where he is at any particular moment.
• training in natural resource management. All reportersneed to be familiar with the idea of CAMPFIRE and hownatural resources can be managed by a community. Thismay involve discussing issues such as:• what are natural resources?• introduction to wildlife management• what is conservation and utilisation?• introduction to CAMPFIRE• what is ‘Appropriate Authority’ ?• the value of wildlife; its trophy and non-hunting value.• the importance of setting a quota
Rural district councils can get more detailed information aboutthe training needs of problem animal reporters by referringthrough the CAMPFIRE Association with the members of theCAMPFIRE Collaborative Group.
Animal damage assessment
Map reading
Navigation Natural resource management
How effective should problem animal reporting be?To be effective a problem animal report should be madequickly so that if the incident is serious it will still be possiblefor the control agent to locate the animal responsible for thedamage. This means that the time taken from reporting theincident to its investigation by a control agent, should be asshort as possible and ideally no more than 3-4 hours.Experience has shown that when control agents receive reportsmore than 12 hours after the incident, they are unable to dealwith the problem effectively. This is because of the followingproblems:
• the control agent may be unable to find the animalresponsible for the damage
• an animal found nearby which was not responsible forthe damage may be killed instead
• if the culprit elephant is unclear, non-lethal deterrentmethods such as flash bombs may have to be used.While at first these may work, elephant soon becomeaccustomed to them, making them ineffective. Thesemethods are also very costly.
Why it is important to decrease the number of animalskilled in ‘problem animal control’Of course, how a district uses its quota, is for its council todecide. However, the number of animals shot throughproblem animal control measures should be reduced as low
as possible. This will maximise the benefits to ruralcommunities since:
• shooting an animal for sport can earn a community moremoney. Usually the total quota in a district is fixed, soevery animal killed through problem animal controlmeans a reduction in revenue earned through hunting.
• shooting an animal without a client presently earns littlemoney since it is difficult to sell hides and ivory becauseof international CITES regulations
Councils should avoid retaining money earned throughproblem animal control activities at the district level, byensuring it is returned as soon as possible to the affectedcommunity.
20
THE VALUE OF AN ELEPHANT TO A COMMUNITY
US $ 10 000 US $ 1 500
As a sport hunting trophy
US $ 5 000As part of a
wet season safariAs part of PAC
21
KEY
District boundary
Ward boundary
Parks & Wildlife Estate
Wards with elephants
GOKWE FACTFILE DISTRICT:Gokwe
SIZE: 1,36 million ha or 3% of Zimbabwe
POPULATION:403 000 or 3.9% ofZimbabwe (1992),made up of Tonga and Shankwe people
Population density: 22.5/km2
CAMPFIRE WARDS:Gokwe North: 4Gokwe South: 6
������������������������������������������������������������������������������������������
CHIZARIRA NATIONAL PARK
CHIRISA SAFARI AREA
CHETE SAFARI AREA
GOKWE NORTH
KARIBA
BINGA
HURUNGWE
KA
DO
MA
GOKWE SOUTH
ZA
M
BI
A
MATUSADONA NATIONAL PARK
L ak e
K a r i b a
Nenyunga
Simchembo
Madzivazvido
Chireya
22
Harare
ZIMBABWE
0
Scale in (km)
50
N
Distribution of elephant in communal areas
Binga 20% Kariba 66%
Gokwe North 14%
Why Gokwe needed problem animal reporting In 1990/91 Gokwe North District Council introduced problemanimal reporting in order to gather information about cropand livestock losses in the four western wards of the district.They did this:
• to try and minimise the disruption to people’s livescaused by problem animals.
• to stem the loss of potential revenue from trophyelephant. Since 1983 an average of 30 ‘problem’ elephanthad been shot each year representing an offtake of 4% oftoday’s population. In 1990/91 alone, 44 elephant or12.6% of the population were killed. Since thesustainable offtake of trophy elephant is about 0.75%,problem animal control activities were increasing theofftake to unknown and unsustainable levels, reducingtrophy quality and therefore the ability to make moneyfrom safari hunting.
• because other control options were not suitable. Fencingoff all the people would have cost too much money andthe DNPWM had no wish to fence in the wildlife ontheir estates. Trying to force elephant back into theNational Parks wouldn’t work since there were alreadytoo many elephant in the National Parks. In any caseconflicts in the district would still continue as elephantcontinued to raid crops from the parks and wildlifeestates. Moreover, elephant in the communal areas
belonged to the people there and should form part oftheir land use system.
Gokwe’s crop raiding problems arose largely from the fact thatbetween 5-800 elephant lived in the four western wards ofGokwe North where nearly 29 000 people had their homes.Partly as a result of the existence of unoccupied land that waspreviously tsetse infested, these wards were being rapidlysettled by farmers immigrating from other districts bringingwith them their livestock. While most people supported theestablishment of a CAMPFIRE programme, some members ofthe community did not wish to retain wildlife areas especiallysince there was a great demand for agricultural land whichwas in short supply. This movement of people into wildlifeareas was creating conflict, especially where settlements werescattered and unplanned.
Gokwe’s problem was also its opportunity. It had carried outground and aerial counts and found wildlife populations innine wards. It could therefore introduce wildlife as a form oflanduse knowing that commercial ranches had already foundwildlife to be profitable, complementing and even replacingcattle in natural regions four and five. If people wished to usetheir wildlife though, effective problem animal managementminimising any conflict was needed.
23
CHAPTER 3
USING PROBLEM ANIMAL INFORMATION: How it helped Gokwe
So in 1991 ‘Appropriate Authority’ was granted to Cheziya-Gokwe District Council (now Gokwe North Rural DistrictCouncil) and a Board of Management was established togovern policy on wildlife. A district wildlife co-ordinator wasappointed, basic wildlife management programmes startedand training for the implementation of a problem animalreporting system begun. Gokwe North then established aproblem animal control strategy based on the steps ofreporting shown in the diagram on page 18.
Making use of the information gathered through problemanimal reportsWhat the Gokwe community needed to find out was:
• where most problem animal incidents occurred• what type of damage was caused• which animals most frequently caused the damage• when most problem animal incidents took place
With this information Gokwe could begin to plan a strategydeciding:
• where to place problem animal reporters• when a problem animal control unit should be available
‘on call’• whether an electric fence would help in some areas and
what animals this fence should be effective against
A great deal of information was collected during the 1991/2season which the council went on to analyse and discuss.
Identifying where most problem animal incidents occurredFinding out which were the worst affected areas by problemanimals enabled the council to make sure that these areas wereadequately monitored in the future and that control agentswere placed so that they could quickly reach them.
24
Population estimates and density for large herbivoresin Gokwe District
Two wards, Simchembo and Nenyunga accounted for 90% ofall incidents. While Sinchembo ward shared a large frontagewith Chirisa and Chizarira Safari Areas, Nenyunga had thehighest percentage of wildland in the district. Chireya andMadzivazvido wards had fewer problem animal incidents.
Identifying what type of damage was causedMany different crops were affected. The crops affected withineach ward was a reflection of the crops grown rather than theanimals preferring to eat a particular crop. The followingdiagram on page 26 shows that maize, cotton and small grainswere almost equally affected.
25
Location, landuse and problem animal incidence Type of damage caused by problem animals
Type of incidents reported in the 4 wards
threat to human life 3%
crop damage 87%
livestock killed 10%
Identifying which animals caused the damageThree quarters of all the reported incidents involved elephant.They damaged crops, threatened people and even causedseveral deaths.
26
Crops affected by crop raiding
maize 32%
small grains 28%
cotton 31%
Crops damaged by problem animals Animals causing a problem
other 9%
Animals responsible for damage
elephant 75%
buffalo 10%
other 15%
Badger
Identifying when most incidents took placeIn Gokwe North, most reports of a serious nature took placebetween February and June with the majority in March andApril. Serious crop raiding seems to be related to the time ofthe year in which crops mature, which in turn depends onwhen rainfall is received in any one year.
The Gokwe experience provides us with useful informationabout problem animals. It is extremely important that ruraldistrict councils keep their problem animal reports up-to-dateand evaluate them annually at the end of the crop raidingseason. Advice on how to analyse the information can beprovided by members of the CAMPFIRE Collaborative Groupand will also form a part of the training programme linked tothe booklets in this series.
27
When most incidents occurred
Issues arising from the Gokwe experienceThrough the problem animal reporting system it became clearthat:
• many problems were caused by elephant• most incidents occurred between March and May• Simchembo and Nenyunga were the areas mainly
affected• a variety of crops were destroyed
It also led to a further discussion and evaluation of theusefulness of the reporting system as a tool for minimisingcrop damage while maximising the revenue to a communityfrom trophy fees. Out of these discussions the following issuesemerged.
Issue 1: Problem animal reporting can lead to fewer animalsbeing killed as a part of problem animal control activities
Following the introduction of a reporting system in GokweNorth, the number of problem animals destroyed has declined.This may be due in part to the co-ordinated approach ofproblem animal reporting as well as a change in the attitude ofthe community and the people implementing problem animalcontrol.
However, many incidents went unreported and someincidents which were reported as serious were notinvestigated. Several wards in Gokwe did not have a problemanimal reporter in place and so were excluded from theexercise.
One problem though was the difference between the numberof problem animal incidents and the numbers of animals thatcould be shot, owing to the limited quota. Whilst a number ofdeterrent actions were undertaken by the control agent, it wasnot possible to satisfy all the people suffering from crop andstock raiding animals. Nevertheless, an important benefit wasthat the system forced accountability for action.
28
Issue 2: A reduction of the PAC quota may increasecommunity revenueIntroducing wet season hunting of PAC animals and aproblem management agreement with a Safari Operator in1992, provided a better way of dealing with problem animalsand a reduction of the numbers of animals shot on PAC.
The effect of increasing community revenue through thereduction of the PAC quota in favour of a hunting quota stillneeds to be evaluated. The aim should be for revenues gainedthrough this switch to be paid directly by the PAC agent to theVIDCO’s suffering from the problem animal incidents, so thata direct link in the communities’ minds is established betweenproblem animals and the monies paid to them.
Issue 3 : Problem animal reporting data indicates thatsome crop damage may result from small animals whichare difficult to controlProblem animal reports also indicated that some damage anddisturbance did not result from elephant or buffalo. Problemanimals such as bushpig, leopard, baboon and springhare maybe responsible for high levels of damage but are very difficultto control since they are highly mobile, not easily found andcan exist within small areas of fenced agricultural land.Because these ‘nuisance’ animals cause less damage at any onetime people are more tolerant towards them and don’t blame
them as much as larger animals for the damage. As part ofdistrict policy, these animals could be addressed locallythrough ward wildlife committees, especially where it is feltthat complaints about ‘crop raiding’ may be linked to thedesire for wildmeat to supplement the diet. Species such aswildpig, porcupine, springhare and baboon could be utilisedby the community to satisfy part of its need for meat, and takeaway some of the desire to have valuable species killed.
Issue 4: Problem animal reporting provides information whichcan help a community to decide whether an electric fence wouldbe cost effectiveThe introduction of electric fencing does not reduce the needfor reporting. Good electric fence projects depend initiallyupon information provided by reporting systems. Fencingthough should be seen as part and parcel of land use planningand consolidating settlements. Because both fencing and landuse planning are the best long term measures for districts inmanaging problem animals, they are dealt with in greaterdetail in other booklets of this series.
29
Overall, from the main use of problem animal reporting datashould be to allow councils to design a strategy which makesthe most effective use of its limited resources by, for example:
• hiring a PAC agent only at those times of the year whenproblems are likely to occur
• ensuring that this PAC agent is based near to the likelytrouble spots
• placing more reporters in those areas most at risk• marketing wet season PAC as part of the overall quota• fencing only those areas which are most in danger
Through all these activities councils can aim to limit costs andmaximise revenue, while increasing their PAC effectiveness.
30
31
Summary Problem animals are a vital feature of daily life in CAMPFIRE areas. In order to minimise their negative impact, rural districtcouncils must:
• consider the local background and basic issues relating to the problem carefully
• understand that a problem animal reporting system is essential, should be clearly understood by all before it is applied andfinally, evaluated
• use the data from problem animal reporting as a basis for further action in both dealing with individual problems andsupporting long-term planning in a rural district council
• establish training programmes for the community, reporters, and council officials especially in the analysis and presentationof problem animal reporting data
• realise that problem animal reporting is only one of a number of important building blocks that councils need to have inplace in order to manage problem animals. These other building blocks are considered in later booklets in this series.
Appendix 1
GOKWE DISTRICT PAR Fl NO: ............
PROBLEM ANIMAL REPORT ..........................................................................................................................Ward
Date of complaint: .............................................................. Name of PAR:..................................................................
Date of incident:.................................................................. Complainant: ..................................................................
Locality (village): ................................................................ Grid Ref. (6 figures)........................................................
Nature of Problem (tick where appropriate):
Crop Damage
Livestock maimed or killed
Damage to property, e.g. grain bins
Threat to human life
Other (Specify)
Wildlife responsible (tick): Numbers involved: Sex:
Elephant ....................................................................
Buffalo ......................................................................
Lion ..........................................................................
Baboons ....................................................................
Other (Specify) ..........................................................
Type of crop How good was the crop Age of Crop (tick S for Seedling, I for
damaged (tick): before damage occurred (tick): intermediate or M for Mature):
Good Medium Poor S I MMaize ................................................................................................Millet..................................................................................................Sorghum............................................................................................Cotton ................................................................................................Vegetables ........................................................................................Other..................................................................................................
Dimensions (paces) of total field where damage occurred:Length:......................................................................................(paces)Width: ......................................................................................(paces)
Dimensions (paces) of actual damaged portion of field:Length:......................................................................................(paces)Width: ......................................................................................(paces)
Other relevant details (e.g. movement or behaviour of problem animal, number of livestock killed, type ofproperty damaged, numbers of previous reports in area etc.)
Copy to council: Yes/No Date copy sent: ............................................................
How was the copy sent?: ..............................................................................................................................................
Appendix 2
PROBLEM ANIMAL REACTION REQUEST PAC F1*
Date of request: ..............................................................
From: Cheziya Gokwe District Council
To: National Parks, Gokwe/National Parks, Chirisa/Safari Operator (delete inapplicable)
Request for the above mentioned to investigate a Problem Animal Incident
at .............................................................Ward/Vidco. Grid Reference .......................................................
The Problem Animal is reported to be: (state which animal is causing the problem and nature of problem)
This request does not necessarily require an animal to be destroyed. Please return the PAC Fl with this request after reaction to the incident.
Stamp......................................Signature
(Tick where appropriate)
The Problem Animal Report was made on the enclosed report
The Problem Animal Report was made by telephone from .......
The request for Problem Animal Reaction was made by this form.
The request for Problem Animal Reaction was made by telephone by ....................................(Name of officer making the request)
*PAC F1 and PAC F2 can be combined back to back.
Appendix 3
PROBLEM ANIMAL CONTROL REPORT PAC F2*
Copy of PAR report received date: ............................................................................................................
Name of authorised control officer:............................................................................................................
Position held: ................................................................................................................................................
Specify animal(s) against which action was taken: ..................................................................................
Animal(s) harassed: YES\NO
Animal(s) destroyed: YES/NO If YES, how many?:................................................................................
Total no. in herd (if applicable): ..................................................................................................................
Locstat (6 figure gird reference if possible) ..............................................................................................
Sex(es) of animals destroyed ......................................................................................................................
Was animal killed instantly?: YES/NO
Was animal harassed/destroyed at damage site?: YES/NO
Method of harassment (Brief details):
Was the PAC call out justified?: YES/NO
Distance travelled by vehicle (Km) .............................. Distance travelled on foot ..............................
No. of days and nights spent out ..............................................................................................................
No. of rounds of ammunition expended:.............................................Rifle Calibre ..............................
Assistance received (Brief details if applicable):
Hide recovered: YES/NO
To which base?: ................................................No. of hides recovered ....................................................
Has hide been properly cleaned, slated and stored? YES/NO
How were the tusks disposed of? CLIENT/COUNCIL
Serial no. of issue voucher if delivered to Council ..................................................................................
Combined weight of tusks (Kg): ................................................................................................................
Any other remarks:
Signed: ........................................................................ Date: .....................
*PAC F1 and PAC F2 can be combined back to back.
This booklet is the second in a series of guides on Wildlife Management and examines in detail the advantages of settingup a Problem Animal Reporting (PAR) system. It provides background information and guidance to Rural District Councils who wish to do this and should be read along with the other booklets in this series. Together they provide information and guidance in turn, to members of villages, wards and rural districts involved in the management of Campfire projects.These booklets are linked to training programmes being undertaken by members of the CAMPFIRE Collaborative Group.
Booklets in the Wildlife Management series include:
1. Problem Animal Reporting2. Electric Fencing Projects3. Marketing Wildlife4. Safari Hunting 5. Quota Setting Manual
WWF is a member of the Collaborative Group supporting the CAMPFIRE programme in Zimbabwe and has providedsupport and training to communities in the establishment of wildlife management systems.
