Namibia’s tourism and wildlife concessions system has evolved from loosely regulated arrangements before independence to a more structured framework introduced in 2007. However, concerns over consistency, transparency and equitable benefit-sharing continue to raise questions about how concessions are awarded and managed.
Ellie Ndokosho, director of scientific services at the Ministry of Environment, Forestry and Tourism, outlined the system’s development and remaining weaknesses.
Before 2007, and even before independence, private operators were authorised to run businesses in protected areas and certain state land under Section 17 of the Nature Conservation Ordinance 4 of 1975. This allowed investors to provide accommodation, meals and tourism services in areas including Hobatere, Etendeka and Palmwag.
Ndokosho says the system lacked clear guiding principles. “That was the only legal reference point,” she says, adding that the absence of uniform standards resulted in inconsistent contracts, weak enforcement and differing interpretations of concession rights.
A more structured system
Another longstanding challenge has been confusion between joint ventures and concessions. Joint ventures apply primarily to communal land under conservancy management, while concessions are awarded in protected areas and on state land.
Ndokosho says communities living alongside wildlife, particularly those affected by human-wildlife conflict, were largely excluded as direct beneficiaries under the earlier system.
“It was fatal to our conservation model,” she says, adding that Namibia’s current conservation approach is based on community participation and benefit-sharing.
The government introduced the National Policy on Tourism and Wildlife Concessions on State Land in 2007 to regulate commercial activity in protected areas, promote conservation, generate revenue for national parks and ensure benefits reach local communities and previously disadvantaged Namibians.
The policy introduced defined concession periods. Lodge and campsite concessions typically run for 20 to 25 years, while activity-based concessions, such as 4x4 routes and balloon safaris, last 10 to 12 years. Trophy-hunting concessions generally last five years, allowing regular reviews of ecological impact and investment value.
Traversing rights can be issued for up to 25 years and are often awarded directly to communities in or near protected areas to support joint-venture lodge arrangements.
The policy also established formal structures for managing concessions, including a concessions committee that advises the minister and a dedicated concessions unit. Procurement can involve direct awards, tenders or auctions.
Ndokosho says the policy aims to maintain ecological integrity, support effective protected-area management and generate economic benefits through tourism. Community empowerment remains central, with concessions expected to create employment, reduce poverty and ensure rural communities benefit from natural resources.
Accountability concerns
Despite the framework, communities continue to raise concerns about limited tangible benefits from concession agreements.
The ministry cited a directive by former tourism minister Pohamba Shifeta requiring at least 50% of concession income to be reinvested in community development programmes identified at annual general meetings.
Ndokosho says stronger enforcement and accountability are needed. Poor reporting by some investors and community structures makes oversight difficult, and the ministry is considering penalties for non-compliance.
Labour conditions at some concessions have also come under scrutiny following allegations of poor treatment of workers. While not all complaints have been substantiated, Ndokosho says investigations are necessary to ensure fair labour practices.
Another concern involves community trusts that previously held concession rights. Because trustees are accountable to the Master of the High Court, direct community oversight can be limited, creating tensions between beneficiaries and governance structures.
Some communities are therefore moving from trusts to associations, which allow for more direct accountability.
Ndokosho says further legal reform may be needed to ensure concessions are awarded primarily to associations and conservancies whose members are directly affected by wildlife and human-wildlife conflict.
“Such a shift could strengthen transparency and ensure benefits reach intended recipients more effectively.”
