CROSS-SECTORAL COOPERATION IN MANAGEMENT OF NATIONAL PARK UNA Međusektorska saradnja u upravljanju Nacionalnim parkom Una

Protected areas have significant role in protection of biodiversity, social and cultural values followed by improvement of life standard of local population. As a country with economy in transition, Bosnia and Herzegovina is trying to follow globally increasing trends in nature protection. Yet, Bosnia and Herzegovina belongs to the group of countries that have difficulties to meet European criteria for minimal percentage of protected areas. Although in the last two decades numerous initiatives for proclamation of protected areas have been launched, the percentage of protected areas is still far from the European average. Establishment of new protected areas is often followed with certain misunderstandings between interest groups, lack of participation, transparency and involvement of all interest groups. The concept of cross-sectoral cooperation imply interaction between different interest groups in specific area characterized by efforts, cooperation and responsibility in order to accomplish joint consensus about the improvement of management of natural resources. This paper is focusing on the concept of cross-sectoral cooperation through the analysis of its implementation in management of National park "Una", as the youngest proclaimed National park in Bosnia and Herzegovina. The attitudes of interest groups related to cross-sectoral cooperation will be discussed together with proposal of several activities for improvement of cross-sectoral cooperation in National park "Una". Results could be useful for key decision makers in nature protection sector and institutions responsible for management of protected areas to recognize importance of cross-sectoral cooperation and promote its implementation and everyday practice.


INTRODUCTION -Uvod
In the last two decades Bosnia and Herzegovina (hereinafter B&H) have been facing with significant social, political and economic changes that contribute to rise of awareness of public when it comes to the necessity of protection of natural resources. The fact that B&H is one of the countries with smallest percentage of protected areas in Europe caused launching of many initiatives for proclamation of new protected areas. Requests for launching the initiatives for protection of nature come mostly from nongovernmental organizations (hereinafter NGOs), followed by media campaigns for promotion of natural values and initiation of proclamation of protected areas. Considering the fact that NGOs do not decide formally about the proclamation of protected areas, the process of establishment and proclamation of protected areas sometimes last for a long time. It is often the case that during the process of establishment of protected areas, authorities responsible for proclamation of protected areas (ministries at different levels and state authorities) come in conflict with local communities that are perceiving establishment of protected area as significant limitation in their day-to-day activities.
In most of the cases, misunderstandings between local communities and responsible authorities are consequence of lack of continuous communication and information-sharing. On the other side, local communities and local population often have wrong perception about allowed activities which have to be in accordance with management plan and developing possibilities offered by newly established protected area. Very often, their activities ought to be changed or limited/harmonized in accordance with sustainable development and management plan of protected area. Therefore, it is important to establish communication and cooperation between all interest groups at the beginning of the process of establishing nature protection area that will in time outgrow in cross-sectoral cooperation. While understanding that all participatory processes entail communicative action, it is useful to recognize that in the situation where problems are being defined and actors are forming or changing their roles, the essence of the participatory process is communicative action (SHANNON, 2003).
As concerns establishment of protected areas in B&H, previous procedures were not giving particular attention to the promotion of cross-sectoral cooperation. Such approach resulted with misunderstandings between different interest groups. Furthermore, it seriously jeopardizes the economic justification of establishment of protected areas. In the past, decisions about the proclamation of protected areas have been made at the state level, according to the "top-down" principle of decision making. Transition process which resulted with democratisation of the country, establishment of cross-sectoral cooperation, appearance of new interest groups and strengthening of NGOs contributed to the emergence of new concept for management of natural resources known as "environmental governance". The concept of "environmental governance" differs from traditional hierarchical decision-making in reduction and minimisation of power of state authorities, while at the same time implementing cross-sectoral cooperation, participation and harmonisation of activities of all interest groups in protected areas. The concept of "environmental governance" is focused on regulation of nature protection and coordination and steering of actors of nature protection. Focus is on cooperation and joint activities of NGOs and state authorities in order to improve the management of natural resources in protected area (DUFFY, 2005).
Establishment and management of protected areas which is in accordance with practice of developed European countries promote instruments such as participatory planning and cross-sectoral cooperation in order to prevent and avoid unnecessary cross-sectoral conflicts. Main cause of conflicts is in wide range of interest of different actors in nature protection sector. Conflicts in nature protection sector mainly refers to the conflicts between different sectors that are depending upon usage of natural resources such as energy sector, forestry, agriculture and wood processing industry. Furthermore, experiences of developed countries related to nature protection indicate the significance of respecting the principle of participation which implies involvement of all interest groups in the process of establishment and management of protected area and transparency in decision making. In terms of nature protection, B&H has to respect above mentioned principles in order to join European Union (STRINGER AND PAAVOLA, 2013), (SARVAŠOVA ET AL. 2013). Furthermore, it will lead to the ensuring of sustainable management of existing and future protected areas. It is important to stress out that above mentioned principles have to be in accordance with political framework, economical realities and characteristics of respective localities in order to secure solid basis for its full implementation in protected areas in B&H. Research related to the significance of cross-sectoral cooperation in the process of establishment and management of protected areas in B&H are still in initial phase. This paper tries to contribute to scientific understanding of concept of crosssectoral cooperation in establishment and management of protected areas in B&H through the analysis of its implementation in management of National park "Una" (hereinafter NP ''Una''), as one of the most attractive and perspective protected areas in B&H. The results of this paper will provide significant inputs for key decision makers of nature protection sector and managers of protected areas for promotion and implementation of cross-sectoral cooperation in practice.

RESEARCH METHODS -Metode istraživanja
According to the Law on the NP ''Una'' (Official gazette of the Federation of Bosnia and Herzegovina, number 44/08) total area of NP "Una" is 19.800 ha, out of which 13.500 ha is in the regime of strict and aimed protection while around 6.300 hectares is in the regime of directed development. Administratively, it belongs to the municipality of Bihać. Within the area of strict and directed protection by a special regime, certain traditional economic activities are allowed. On the other side, in the area of directed development, the development of traditional and some of the existing economic activities are also allowed, as well as the development of tourism that should comply with local specifics and values. NP ''Una'' is spread through the valley of the upper stream of the river Una as well as through the valley of the river Unac, right tributary of Una, all the way to the river Krka in the west. This area represents a unique natural complex in this part of Europe, very valuable for the conservation of the total landscape and biodiversity. Protected area belongs to the Una-Korana plateau, and covers valley parts of the river Una and Unac and orographic slope Plješivica and Grmeč (Picture 1).
Primary data, necessary for the preparation of this paper, were collected in two phases through conduction of qualitative research on attitudes of key actors of nature protection policy in the Unsko-sanski canton.
Qualitative research is interpretative research, with inquirer typically involved in a sustained and intensive experience with participants, introducing the range of strategic, ethical and personal issues into the qualitative research process (LOCKE ET AL. 2000). Qualitative research focuses on the process that is occurring as well as the product or outcome. Researchers are particularly interested in understanding how things occur (MERRIAM, 1998).
By using adequate techniques of interviewing (in depth, face-to-face interview) qualitative data about the involvement of interest groups in the process of establishment and management of NP ''Una'' and involvement of above mentioned interest groups in cross-sectoral cooperation were collected.
Face-to-face interviews with participants, involve unstructured and generally openended questions that are few in number and intended to elicit views and opinions from the participants (CRESWELL, 2003). Snowball technique was used for the selection of examinees (representatives of interest groups) in order to collect qualitative data. According to THOMPSON, 2002, implementation of snowball technique is conducted by asking a few identified members of a rare population to identify other members of the population; those so identified are asked to identify others, and so on, for the purpose of obtaining a nonprobability sample or for constructing a frame from which to sample.
Initial interview was conducted with manager of NP ''Una''. He suggested interest groups, relevant by his opinion for process of establishment and management of NP ''Una''. The same procedure of nomination of interest groups was applied in case of all interviews with representatives of interest groups. Chamber of economy RRA Regional development agency Taking into consideration all nominated and contacted representatives of interest groups, the final sample consisted of 25 examinees. For the purpose of conducting the first phase of qualitative research, an appropriate questionnaire was designed in order to collect data about the attitudes of key interest groups which were involved in the process of establishment and management of NP ''Una'' as well as to the involvement of interest groups in cross-sectoral cooperation. The questionnaire comprises of 28 questions, divided in five groups: ice braking questions, establishment and management of NP "Una", interest groups, cross-sectoral cooperation and sociological, ecological and economic benefits. First phase of qualitative research was conducted in the period July-September of 2011. Representatives of interest groups had chance to express their positive, negative or neutral attitude for each question which was used as a basis for creation of opponent-advocate matrix. Abbreviations for each interest group in the first phase of qualitative research (used in opponentadvocate matrix) are presented in Table 1.
In the August of 2012, second phase of qualitative research was conducted in Unsko-sanski canton in order to determine the level of progress in cross-sectoral cooperation in the NP ''Una''. By using the technique of in depth face-to-face interview, qualitative data about the assumptions for cross-sectoral cooperation in NP ''Una'' were collected. The list of stakeholders from the first phase of research was used in a way that at least one representative from the group of stakeholders was interviewed. The questionnaire designed for the second phase of qualitative research consisted of six main questions with appropriate sub questions. The attitudes (positive, negative, neutral) of stakeholders were presented in the form of advocate-opponent matrix. The list of abbreviations for stakeholders is presented in the Table 6.

RESULTS AND DISCUSSION -Rezultati i diskusija
As previously mentioned, qualitative research and use of appropriate questionnaire were used for collection of the data about the attitudes of key interest groups related to the different aspects of functioning of NP ''Una'' with special accent on their involvement in the process of cross-sectoral cooperation. The responses of interest groups representatives on the question "Was your institution/organization involved in establishment of NP ''Una''?" are presented in Table 2. Based on collected answers, one can conclude that certain institutions (especially those from forest sector, local communities and touristic organization of Unsko-sanski canton) and interest groups were not completely involved in the process of establishment of NP ''Una''. Undoubtedly, involvement of previously mentioned institutions at the beginning of process of establishment of NP ''Una'' could contribute positively to the quality of the entire process of establishment. With regard to the fact that forest covers significant area of the National park as well as the fact that prior to its proclamation, entire area of National park was managed by the public forest company "ŠPD Unsko-sanske šume", this is particularly related to the representatives of forest sector. Based on the long term management experience and available forest road infrastructure, National park could benefit much more if they had involved public forest company in the process of establishment of NP ''Una'' at the beginning. By doing so, it will increase their internal capacities until the moment they employ sufficient number of employees and build necessary infrastructure for optimal functioning of National park. Table 3 does not contain public company NP ''Una'' due to the fact that previously mentioned company was established after the proclamation of National park. The results of the research presented in the Table 3 imply to the conclusion that opinions of the representatives of interest groups are divided. Although the municipality Bihać was involved in the process of establishment of NP ''Una'', they are not satisfied with the role of the municipality in the initial phase of establishment of National park. Arguments for that can be find in the fact that municipality did not have any influence to the nomination of acting executive manager whose head office was located in Sarajevo, affecting the whole process outlast more than necessary. With the nomination of manager of NP ''Una'' the process was significantly improved. In the period when the research was conducted, municipality Bihać supported recently established NP ''Una'' by provision of offices for employees and vehicles. Other interest groups stated that they were not duly and enough informed. Although the significant area of the National park was previously managed by the public company "ŠPD Unsko-sanske šume", they were not informed and involved in the process of establishment as well. From the results presented in Table 4 it is obvious that most of the interests groups are not involved in the management of NP "Una". Exceptions are municipality Bihać (reason for that is because the biggest percentage of the area of National park administratively belongs to the municipality Bihać) and Institute for protection of cultural heritage Bihać which is responsible for protection of cultural and historical heritage in the National park. Public company NP ''Una'' is established for management of National park. By the time when the research was conducted, NP ''Una'' was established recently and had only one person employed (manager of National park). Therefore, it was hard to expect the involvement of interest groups in the management process since it is necessary to allocate certain amount of time to establish necessary organizational structure and employ adequate personnel. Still, interest groups expect to be involved in the process of management in the future. It would be very useful that National park, once it is consolidated with personnel and infrastructure, starts with the process of continuous information of all interest groups and gradually involves them in the management process in accordance with real possibilities and management plan of the NP ''Una''. Through the contact with the interest groups, one can conclude that most of them would be satisfied with regular information about the planned activities in the management process of NP ''Una''. There are also interest groups which are unsatisfied with the current situation (Ministry of agriculture, water management and forestry of Unsko-sanski canton and public forest company "ŠPD Unsko-sanske šume") considering the fact that their involvement in the management would contribute to the better management of NP ''Una''. This is substantiated with the fact that public forest company "ŠPD Unskosanske šume" has trained employees and necessary machinery that could improve management activities in the National park. In general, it is too early to make a sound conclusion about the fulfilment of expectations of all interest groups related to their involvement in the process of management of NP ''Una''.
The attitudes of representatives of interest groups related to the question: "Was there enough cross-sectoral cooperation during the establishment of NP ''Una?" are divided (Table 5). Examinees that answered on this question positively substantiated their opinion with the statements that they had enough discussions and workshops related to the establishment of NP ''Una'', and everybody had a chance to participate, get enough information and be involved in the process of cross-sectoral cooperation. The opposite attitudes are justified with the statement that process of establishment of NP ''Una'' (especially at its beginning) was accompanied with the lack of timely information, decision making at the Federal level, modest promotional activities causing the weak interest and absence of certain interest groups from the process of establishment of NP ''Una''. Having in mind the unique attitude of all interest groups about the importance of cross-sectoral cooperation, it is necessary to take all measures and activities for full implementation of this principle in the process of management of NP ''Una''. All interest groups have similar understanding of the term cross-sectoral cooperation. Under the cross-sectoral cooperation they consider: harmonization of interests, coordination, interaction, dialogue, respect and cooperation between different sectors and interest groups and public-private partnership, with respect of principles of transparency, continuous communication and full information of all interest groups in the process of management, decision making, implementation and monitoring of all activities in the NP ''Una''. All representatives of interest groups fully support cross-sectoral cooperation as a principle in management of NP ''Una'' and consider that full implementation of cross-sectoral cooperation is one of the most important preconditions for effective and efficient functioning of the NP ''Una''.
Since all interest groups recognized importance of cross-sectoral cooperation, it was necessary to determine the minimal assumptions for implementation of this concept. Representatives of all interest groups agreed that it should consider: employment of adequate personnel, formation of coordinating cross-sectoral advisory body, development of educational programmes for interest groups, urgent adoption of spatial documentation, harmonization of interests through the continuous education and contacts between all interest groups, developed system of promotional activities and involvement of media in order to secure necessary level of transparency of all management activities in National park. Suggestions for improvement of crosssectoral cooperation are similar to the assumptions for cross-sectoral cooperation with accent on formation of coordinating cross-sectoral advisory body with purpose to provide help to the NP ''Una'', including the representatives from all interest groups. The special focus was given to the cooperation and equal representation of interests of all participants, especially local community, in order to decentralize decision making process. Most of the interest groups agreed that it is necessary to implement and respect Law on NP ''Una'', to adopt spatial documentation in order to improve crosssectoral cooperation and to be informed about the possibilities and restrictions related to the different activities in National park.
Establishment of public-private partnership in order to mobilize private capital and develop ideas in accordance with current legal framework for management of NP 'Una'' were suggested as one of the key elements for improvement of cross-sectoral cooperation. Preconditions for all previously mentioned suggestions are employment of adequate staff, improvement of technical capacities and existence of veritable willingness of all interest groups for understanding and compromise based on principles of respect, cooperation and tolerance.
The list of abbreviations of stakeholder interviewed in the second phase of qualitative research is presented in the Table 6.  Table 7 contains answers of interest groups on the question: "Is it necessary that NP ''Una'' has more employees?". Almost all interest groups agreed that it would be necessary to employ more persons in order to secure that NP ''Una'' functions in full capacity. Interest groups support the idea of employing local population in NP ''Una'' and by that directly stimulate the sustainable development and employment of young people. After the adoption of Law on NP ''Una'', the public company NP ''Una'' was established. Until 2011, public company NP ''Una'' had supervisory board and acting executive manager followed by election of manager and establishment of directorate and monitoring service. By having these preconditions, public company NP ''Una'' started with implementation of activities related to protection of nature and establishment/improvement of current infrastructure. In the moment when the research was conducted in 2012, public company NP ''Una'' had 20 employees. This represents significant improvement in one year time but, still, it does not fully meet the needs of National park indicating that number of employees should be increased.   Table 8. Most of the interest groups agree that NP ''Una'' is managed in a transparent way and all information related to the NP ''Una'' are available to public and interest groups. General information related to the NP ''Una'' are available to public by media, while detailed information can be obtained from employees of the public company by direct contact or in written form.

CONCLUSIONS -Zaključci
Complexity of natural resource management in Unsko-sanski canton is conditioned by influence of different sectoral policies and existence of great number of interest groups. Results of this paper indicate particular emphasis of such complexity in case of the NP ''Una''. Interests of different groups are numerous. Still, it is obvious that NP ''Una'' represents their meeting point. Diversity of interests implies necessity of participatory planning and cross-sectoral cooperation as main elements of "environmental governance". In case of NP "Una", implementation of the concept of "environmental governance" considers high level of cooperation between public institutions (governments, ministries, public administration, public company NP ''Una'') and civil society (NGOs, public and local community). In such complex situation, all interest groups, especially general public and local communities, require to be involved in planning process and implementation of natural resource management. Strategic decisions related to management of the NP ''Una'' should be based on the principles of participation, inclusiveness and transparency, with full implementation of concept of cross-sectoral cooperation between all interested parties. Cross-sectoral cooperation means interaction between interest groups (public, private and civil sector) characterized by dialogue, cooperation and responsibility in order to accomplish joint attitude about the management of NP ''Una''.
All interest groups undoubtedly support an idea that cross-sectoral cooperation should be one of the key principles in functioning of NP ''Una''. Most of the interest groups that support activities in NP ''Una'', recognize chances for development of Unsko-sanski canton and improvement of living standard of local population. Enhancement of cross-sectoral cooperation represents joint interest for all interest groups.
When it comes to the level of involvement of interest groups to the process of establishment and management, certain interest groups stated more frequent objections at the beginning of the process of establishment of National park. The most frequent critics were related to the slow process of establishment of public company for management of NP ''Una'' and lack of information about activities related to the NP ''Una''. Gradually, as process of establishment and functioning of National park advance, cross-sectoral cooperation become more intensive with tendency of continuous improvement. There are certain limitations related to the establishment of system of information sharing of all interest groups followed by the lack of employees and organizational limitations implying that more attention should be dedicated to these activities in the future. It is necessary to secure institutionalisation of information sharing and communication between public company NP ''Una'' and other interest groups, particularly because of the fact that interest groups who were not satisfied with their involvement in the process of establishment of National park would change their attitude if they were timely and continuously informed about the activities related to NP ''Una''.
By respecting the principles of cross-sectoral cooperation, results of this paper could serve as a basis for creation of guideline for management to strenghten NP ''Una''. Involvement of all interest groups, and especially the public, in the process of planning and management of natural resources in NP ''Una'' would result in improvement of transparency and increase the level of satisfaction of all interest groups. Above mentioned results can be used as a basis for continuous monitoring and analysis of requests of society in order to accomplish sustainable management of natural resources by securing protection of natural potentials for future ecological, sociological and economical needs of population. It is necessary to stress that establishment and development of cross-sectoral cooperation requires support from key political actors, followed by adequate institutional solutions, harmonization and improvement of legislation and adoption of spatial documentation related to the NP ''Una''. Cross-sectoral cooperation is long term process and requires not just time, but also significant investments of human and material resources. Complexity of crosssectoral cooperation lies in the importance of communication whose maintenance and constant improvement is far more important than its outcomes. There is not universal model of cross-sectoral cooperation; still cross-sectoral cooperation should fully respect the specificity of concrete area together with requirements of all interest groups.