Empowering Pyromaniacs in Madagascar: Ideology and Legitimacy in Community-Based Natural Resource Management Christian A. Kull ABSTRACT Development practitioners frequently rely on community-based natural resource management (CBNRM) as an approach to encourage equitable and sustainable environmental resource use. Based on an analysis of the case of grassland and woodland burning in highland Madagascar, this article argues that the success of CBNRM depends upon the real empowerment of local resource users and attention to legitimacy in local institutions. Two key factors — obstructive environmental ideologies (‘received wisdoms’) and the complex political and social arena of ‘community’ governance — challenge empowerment and legitimacy and can transform outcomes. In Madagascar, persistent hesitancy among leaders over the legitimate role of fire has side- tracked a new CBNRM policy called GELOSE away from one of its original purposes — community fire management — towards other applications, such as community management of forest exploitation. In addition, complications with local governance frustrate implementation efforts. As a result, a century- long political stalemate over fire continues. INTRODUCTION The move to enfranchise local communities in matters of environment and development characterizes much current work in international co-operation. Development and environment agencies alike look for experts in ‘community development’ or ‘local governance’ and seek to include some facet of ‘community-based natural resource management’ (CBNRM) in their pro- grammes. This article, through an analysis of a policy seeking to devolve the management of prescribed burning and wildfires in Madagascar, identifies two major factors which can confront CBNRM programmes. These factors are first, outdated yet persistent ideas in the form of environmental policy narratives or ‘received wisdoms’, and second, the thorny questions of power and accountability in ‘community’ governance. Together, these factors This research was funded in part by the NSF (SBR 98011046) and by a Rocca Scholarship for Advanced African Studies from the University of California, Berkeley. Thanks go especially to Richard Marcus, Nancy Peluso and a very thoughtful reviewer, as well as Michael Watts, Louise Fortmann, Lynn Huntsinger, Oliver Pierson, and Fre´de´rique Lehoux. Development and Change Vol. 33 (2002), 57–78. # Institute of Social Studies 2002. Published by Blackwell Publishers, 108 Cowley Road, Oxford OX4 1JF, UK.