INTERVENTION SUMMARY

The critically endangered ploughshare tortoise (Astrochelys yniphora) in Baly Bay National Park, Madagascar was under significant threat due to poaching by local villagers to supply the international demand from the illegal pet trade markets in Southeast Asia. This intervention focused on strengthening local law enforcement patrol coverage, enhancing their capacity, and increasing their responsiveness to poaching incidents. Moreover, the intervention aimed at assessing the role of local community members in poaching, and understanding their attitudes toward conservation, as well as fostering international cooperation. These efforts led to the identification of 128 signs of poaching from improved patrolling, arrests and prosecutions of 14 poachers and smugglers. The project also provided specialist trainings to over 300 Customs staff and government officials at the National Airport in Madagascar, improving their capacity for CITES enforcement. However, the poaching threat remained high. The intervention was insufficient to reduce poaching pressures: survey results indicated that at least two of the sub-populations of ploughshare tortoises were wiped out and several captive-bred and released animals appeared on social media sites for sale. The intervention did not work because it faced an overwhelming and unexpected surge in poaching pressure during the intervention period, compounded by internal project design flaws, significant challenges with corruption and stakeholder engagement within the judicial and government systems, and persistent legislative gaps in consumer countries. The project, however, concluded that without their efforts, the species would have gone completely extinct.

INTERVENTION DETAILS

What was the problem?

The poaching of critically endangered ploughshare tortoise (Astrochelys yniphora) in Baly Bay National Park, Madagascar by local villagers who sold them to smugglers for transport to Southeast Asia.

What was the Intervention and How was it Implemented?

Improve Coverage and Efficiency of Patrols: SMART (Spatial Monitoring and Reporting Tool) software was introduced to improve patrol management, data use, and communication of surveillance efforts. Community-park ranger patrols were developed and expanded, including "brigades mixtes" (patrols with armed police and military members) during peak poaching pressure. Patrol coverage increased from 1,444 to 2,444 hours per month, where one team of 26 community patrollers focused on core ploughshare tortoise habitats, while an additional 150 park-wide patrollers coordinated their activities in the Madagascar National Park (Increase the Risks - extend guardianship)

Improve Law Enforcement Capacity and Cooperation: The project provided training for Malagasy police, prosecutors, and magistrates on arresting, prosecuting, and sentencing wildlife crime offenders. This included developing sentencing guidelines and training over 300 staff members during multiple training workshops. Additionally, the UK Border Force provided specialist training to Customs agents and various airport management bodies, which led to a sustained relationship with Customs authorities. In total, 328 customs officials received training. Efforts were also made to advocate for and support the legalization and implementation of the "Dina", a local traditional law focused on the security of natural resources, including the ploughshare tortoise. (Increase the Risks - extend guardianship)

Was the Intervention Effective, Ineffective, or Promising?

The intervention was ineffective in reducing ploughshare tortoise poaching and increasing its population density. Poaching had led to the "almost complete removal" of the ploughshare tortoise from three of the five sub-populations. This was evidenced by an increase in animals being seized at borders and offered for sale, primarily online through platforms like Facebook and chatrooms. Despite the project's inability to halt the poaching threat entirely, several other components of the outcome statement were achieved. The training of Customs agents and the identification of "virtuous magistrates" led to successful prosecutions of smugglers. Greater collaboration between MNP and communities was achieved through training patroller to expand patrol effort, and implementing new patrol monitoring methods, such as SMART.

How do We Know?

The intervention did not work because there was an "unprecedented surge" in poaching pressure in the beginning of the project, which project partners had no forewarning about. It was evidenced by a staggering increase in local prices (from $22 in 2010 to $650 in 2016 offered to Durrell staff locally). Additionally, the project design was too ambitious given the capacity levels within the partnership and especially within government agencies. This was exacerbated by Madagascar's broader political situation, leading to weaknesses in law enforcement and a lack of strong regional governance. The unwillingness of magistrates to engage and corruption within agencies also made securing action at a regional level very difficult. The project team acknowledged they "were overly ambitious in setting out activities with these stakeholders that were difficult to deliver". However, the project made progress in building capacity, fostering collaboration, and securing some convictions.

Were Conservation Outcomes Measured?

Yes. The population of ploughshare tortoise experienced a decline, with near total extirpation observed in three of its five sub-populations.

ASSESSMENT

Poaching remained a serious threat to the local ploughshare tortoise population. Even though law enforcement efforts led to 16 individuals being confiscated, the overall population continued to decline.

Increase the Risks - The intervention targeted locals engaged in poaching, smuggling, and trade of ploughshare tortoises in Madagascar, as well as the judiciary involved in prosecuting and charging the offenders. The intervention assumed that surveillance and deterrence could be achieved through more strategic patrolling via SMART. It also expected that improved prosecution and capacity-building for "virtuous" judiciary would result in improvements in deterring future offenders. Lastly, with intelligence sharing and enforcement cooperation, it was assumed that the international trade would be significantly disrupted.

The project conducted a pre-implementation context analysis. First, it focused on Baly Bay National Park (BBNP), which is the only known habitat of the ploughshare tortoise. The communities were among the poorest in Madagascar, thus having little benefit from the park's existence, fostering resentment and involvement in poaching. It then identified early on that corruption and weak judicial capacity, as well as political instability, were major obstacles to enforcement. At the international level, the intervention included an analysis of transnational trafficking routes and markets. Poor economic condition, missing sustainable income source, negative attitude towards Park officials of locals, lack of strong regional governance, rapid escalation of poaching pressure in the first year of implementation, were all aspects that negatively influenced the mechanisms.

The intervention detailed its implementation in terms of time, resources, training, and partnerships. These were discussed as: Time: The project ran from April 2014 to June 2017 Resources: (Funding & Staff): The total IWT grant value was £215,932. Additional funds were secured from various sources during and after the project lifetime, including the Turtle Conservation Fund, Disney Worldwide Conservation Fund, Jean Sainsbury, and an Online Appeal. Staff included a project manager, patrol coordinator, project leader, and various coordinators and field workers from partner institutions. Laptops, GPS units for patrollers, and tents for patrollers were purchased as capital items. Training: Customs Officials: Over 300 Customs staff received CITES training provided by UK Border Force and MEEF. This included multiple training workshops-National Park Staff/Patrollers: 44 people (21 NGO staff and 23 community patrollers) were trained in the use of SMART anti-poaching software, and this training was provided by one of the project partners, specifically Wildlife Conservation Society. Judiciary: Initial workshops were held for police, prosecutors, and magistrates, with a two-day training attended by 58 national and regional judiciary representatives in the first year of the implementation of the project. Customs Officials: Over 300 staff were involved in multiple training workshops Partnerships: The project involved a collaborative group of institutions, including Durrell Wildlife Conservation Trust (contract holder), Madagascar National Parks (MNP), TRAFFIC Southeast Asia, Alliance Voahary Gasy (AVG), Madagasikara Voakajy (MaVoa), Turtle Conservancy, UK Border Force, Wildlife Conservation Society (WCS), and the Government of Madagascar. This was the first time these partners had worked together as a collaborative group The case study also recorded several challenges that hindered its implementation. These included: Dramatic escalation in poaching pressure: The project had no forewarning of the ""almost complete removal of the ploughshare tortoise from three of the five sub-populations"". Nevertheless, it responded by adapting strategies, dramatically increasing security within the Beaboaly area, increasing patrol hours, moving patrols to critical areas, and implementing ""brigades mixtes"" (armed patrols). Low capacity and unwillingness of judiciary/law enforcement to engage and prosecute: Magistrates were initially ""unwilling to engage"" and gave ""insignificant sanctions,"" and corruption was a major barrier. This was overcome by working with a ""virtuous circle of magistrates"" known to be honest and interested, focusing efforts on specific trials, and ensuring due process was followed, which led to successful prosecutions and significant sentences. Difficulties with SMART implementation and data management: The transition from paper-based to SMART was ""much more complex than originally anticipated"", and capacity needs were underestimated. To address this, the project recruited an additional manager for Beaboaly, and a Data Manager in Antananarivo to help in the transition to SMART. Political instability and weak governance: The project was conceived during a period of political crisis, and instability continued, affecting government capacity and hindering relationships with authorities, such as the Customs. The project mediated this by meetings with ministries and authorities (e.g., Ministry of Transport for Customs training) to proceed with activities despite changes.

The project reported a total cost of £215,932. It did not include a formal cost/benefit analysis.

SCP COLUMNS

Extend guardianship

ADDITIONAL DETAILS

Citation

Year Range

2010-2016

Country

Madagascar

Landscape

Rainforest,Forest,Savannah

Target Species

Tortoise

Problem type

Poaching

Source: Terry, A. (2017). Breaking the Chain: Combatting Illegal Trade in Ploughshare Tortoise. Available at https://iwt.challengefund.org.uk/documents/XXIWT003/24517/IWT003%20FR%20-%20edited.pdf