21278 AFRICAN FOREST POLICY FORUJM Nairobi, August 29-30, 1996 ~~~~~~~~~~~ ._ E~~~~~~~~~~- -- * -PROCEEDI NGjS Vlolume 1: Main Report Edited by Simon Rietbergen and Jumana Farah 1 ~~Africa Region ffEnvironment Group AFRICAN FOREST POLICY FORUM Nairobi, August 29-30, 1996 PROCEEDINGS Volume I: Main Report Edited by Simon Rietbergen and Jumana Farah The World Bank Africa Region Environment Group DISCLAIMER The material published here has been kindly made available by the participants to the African Forest Policy Forum. If anyone wishes to use this material, in full or in part, we request that a direct contact be made with the respective authors for further information and permission. The authors' contact addresses and numbers can be found in the List of Participants at the end of this document. The views and opinions expressed herein are those of the authors and do not necessarily represent the opinion of the World Bank, or any of its affiliated organizations. The case studies presented at the Forum have been included here for the learning they contain on the experience gained with forest policy implementation in sub-Saharan Africa. This does not imply that all approaches used are endorsed as such by the World Bank Group. The boundaries, colors, denominations, and any other information shown on the accompanying map do not imply on the part of the World Bank Group, any judgment on the legal status of any territory, or any endorsement or acceptance of such boundaries. .i. CONTENTS Volume I Volume II Disclaimer ............................................................ ii ii Foreword .............................................................v Acknowledgments ............................................................ vi Preamble ............................................................ vii Listing of Country Papers by Theme ......................................................... ix v Opening Address ............................................................ xi Statement on the Intergovernmental Panel on Forests ............. .................. xiv Country Papers Forest Management Planning Based on Successful Pilot Operations--Benin (1,2,3,4)'/ .............................................................1 A Pilot Operation To Develop a Community-Based Woodland Management Model--Burkina Faso (2, 4) ..................... ........................................4 1 Agroforestry as a Tool to Improve Natural Resources Management-Central African Republic (2) ............................................................. 6 15 Forest Resources Management to Sustainably Satisfy National Household Energy Requirements-Chad (1, 2, 3, 4) .............................................................8 Collaborative Management of State-Owned Gazetted Forests-C6te d'lvoire (1,2,4) ............................................................ 10 29 The Private Sector in sub-Saharan Africa-Is it Able to Take up the Challenge of Sustainable Forest Management? -With emphasis on Gabon- (3, 4) .......... ........ 13 67 Eliciting People's Support to Fight Poaching--Gabon (1, 2) .............. ................. 16 79 Processing and Marketing of Non-Traditional Wood Species-Ghana (3) .......... 17 89 Putting Forest Policy Into Practice: Interim Measures to Control Illegal Timber Harvesting Outside Forest Reserves--Ghana (1, 2) ........................... ................... 19 103 Coordinated Management of Forest Reserves and Peripheral Agricultural Lands--Guinea (1, 2,4) ................ ............................................ 21 125 Rehabilitation of Cement Factory Quarries-Kenya (3) .................... ................... 23 137 Private Sector Participation in the Government Woodfuel and Afforestation Program--Kenya (3) ............................................................ 25 Using Butterfly Biodiversity for Income Generation-Kenya (2) ............ ............. 27 143 Transmara Forests: Conservation and Management Issues--Kenya (1, 2) ........... 29 149 /Numbers between parenthesis indicate the theme(s) of the case studies: 1. Policy and Legislative Reforms 2. Farmer/NGO/Local Community Participation 3. Private Sector Participation 4. Capacity Building .i.i Volume I Volume II Participatory Conservation of Coastal Indigenous Forests--Kenya (2, 4) ............ 30 Community Participation in the Introduction and Establishment of Multipurpose Tree Species-Kenya (2) .............. ............................................. 33 Integrating Tree Cash Crops in Agricultural Production Systems--Kenya (3) ..... 35 157 Spontaneous Growing of Trees by the Private Sector Responding to Market Demand-Madagascar (1, 3) ..................... ...................................... 37 Participatory Formulation of the National Forestry Policy-- Madagascar (1, 2, 3) ........................................................... 39 Environmental Rehabilitation of Refugee Impacted Areas--Malawi (2) .............. 41 163 Stakeholder Participation in, and Restructuring of, Forestry Research Management-Malawi (1, 2, 3,4) ................................ ........................... 43 173 Capacity Building in Local Communities for Sustainable Resource Management-Mali (4) ........................................................... 45 181 Participatory Natural Resource Management--Mali (2, 4) .................. .................. 47 197 Restoration of Highly Degraded and Threatened Native Forests--Mauritius (2). 49 219 Household Energy Strategy: One Element of the Overall Forestry Policy- Niger (1, 2) ........................................................... 51 229 Participatory Forest Land Use Planning - Cross River State-Nigeria (2, 4) ........ 53 239 Participatory Forest Policy Reform--Senegal (1, 2) .............................. ................ 56 255 Community-based Youth Participation in the Rehabilitation of Fragile Areas- Sierra Leone (2, 4) ........................................................... 58 Public Sector Management of Indigenous Forests for Sustainable Timber Harvesting--South Africa (1) ..................... ...................................... 60 Integrated Industrial Forestry: The Case of The Usutu Pulp Ltd.--Swaziland (3). 62 275 Adopting a Farming System Approach to Facilitate Participatory Forestry- Tanzania (2,4) ..................................................................................................... 64 281 The Role of NGOs in Facilitating Community Participation in Forest Conservation--Tanzania (2, 4) ................................ ............................... 66 291 Community-Based Natural Forest Management--Tanzania (1, 2) .......... ............. 68 305 Donor Coordination in the Forestry Sector--Tanzania (1, 4) ............. .................. 71 Reforestation of Refugee Camps -West Nile- Lessons Learned from Implementation-Uganda (2, 4). ............................................................... 73 323 Local Participation for the Conservation and Management of Natural Forests- Uganda (2) ............................................................... 75 329 Promoting Community-based Reforestation and Agroforestry--Zaire (1, 2) ....... 77 Local Participation and Benefit Sharing in Wildlife Management - The CAMPFIRE Experience-Zimbabwe (2, 4) ........................................................... 79 339 Institutional Reforms and Activities to Allow Local Participation in Forest Management-Zimbabwe (1, 2, 4) . ............................................................... 81 357 The Role of the Private Sector in the Sustainable Management and Development of Forests in Sub-Saharan Africa (1, 3) .................. ...................... 83 371 Synopsis of Participants' Comments .......................................................... 87 List of Participants ............................................................... 89 Map of Sub-Saharan Africa: Major Agroclimatic and Forest Zones ......... 95 381 iv FOREWORD Africa's forest resources significantly contribute to the continent's socioeconomic development and environmental protection. The use of these resources is closely associated with the region's food security, energy needs, poverty alleviation, and environmental sustainability. However, African forested lands have been increasingly overexploited resulting in uncontrolled deforestation and degradation which often affect the poor most severely. In recognition of the need to reverse this situation, representatives of the key players in the African forest sector (including governments, donors, NGOs, the private sector and academia) assembled at two Forestry Technical Workshops in Abidjan and Nairobi in April of 1994, sponsored by the World Bank, jointly with the African Development Bank and UNEP, respectively. The World Bank Strategy for the Forest Sector in Sub-Saharan Africa was presented and discussed, leading to a consensus on the key issues and challenges confronting the forest sector in Africa, and the actions necessary to make a significant change in the performance of the sector. Donors were exposed to an African assessment of the prevailing forest resource situation, the problems, and potential solutions. The Strategy, published in 1994, incorporated the views of the African experts and outlined a new forestry policy agenda. Governrments were called to increasingly focus on policy making, planning, and regulatory roles, while progressively withdrawing from tree planting, production, and other forestry activities that can be carried out more efficiently and equitably by the private sector and local communities. Another important outcome of the 1994 Technical Workshops was the establishment of the African Forestry Policy Forum. The Forum was conceived to be a periodic meeting to share implementation experience of, and lessons learned from, activities designed to improve the management of forest resources. The first Forum in the series was jointly sponsored by the World Bank and UNEP, and took place in Nairobi in August of 1996. It was attended by representatives of African governments, the private sector, NGOs, academia, and external donors. Thematic case studies were presented by African and international experts under four main categories: Policy and Legislative Reforms; Farmer/NGO/Local Community Participation; Private Sector Participation; and Capacity Building. This Volume presents summaries of the case studies; the full text may be found in Volume II. It is hoped that subsequent Forums will be organized under the sponsorship of African institutions to maintain the dialogue initiated by the 1994 Workshops and confer a sense of ownership by the stakeholders. C a C. ook Te hnical Manager Environment Group Africa Region v ACKNOWLEDGMENTS The African Forest Policy Forum meeting which took place in Nairobi in August 1996, is the outcome of a collaborative effort to make the Forum happen and succeed in achieving what it was intended to, namely sharing of critical lessons learned from the implementation of a new forestry policy agenda. The Forum organizers would like to thank the multilateral and bilateral donors which contributed essential resources, financial and expertise, to the Forum, in particular, DANIDA, ICRAF, IIED, IUCN, ODA, SIDA, UNEP, and the Norwegian Department of Multilateral Development Cooperation. Special thanks go to the Forum facilitators. And last, but not least, the organizers appreciatively acknowledge the valuable contributions of the Forum participants. vi PREAMBLE Objective and Participants The African Forestry Policy Forum was convened under the sponsorship of the World Bank and IJNEP to facilitate in-depth discussions of high-quality case studies of the new forest policy agenda implementation experience in Sub-Saharan Africa. It did not aim at achieving consensus on some final statement but rather, was designed to be a learning event for all participants, who were representatives from the African public and private sectors, NGOs, and academic community, and international donor organizations. The meeting was a follow-up to the meetings the World Bank organized in Abidjan (with the African Development Bank), and Nairobi (with UNEP) in April 1994 to discuss the draft Forest Sector Strategy for Sub-Saharan Africa (published as World Bank Technical Paper 251 in English and French), and was the result of an initiative of the participants at the '94 Nairobi meeting. A New Forest Policy Agenda The meeting was devoted to sharing lessons learned from implementation of a new forest policy agenda increasingly adopted by many African countries. The new policy agenda calls for governments to increasingly focus on policy making, planning, and regulatory roles, while progressively withdrawing from tree planting, production, and other forestry activities that can be carried out more efficiently and equitably by the private sector and local communities. It also argues that government responsibility for forestry activities could be in the form of providing financing and not necessarily executing these activities. Themes About 40 case studies were presented, grouped under four main themes: Policy and Legislative Reforms; Farmer/NGO/Local Community Participation; Private Sector Participation; and Capacity Building. The themes not being mutually exclusive, some case studies come under more than one theme. Outcome The Forum meeting was successful in showing the practical results that can be achieved if governments are willing to unleash the creative energies of the private sector, local communities and NGOs, and their own forestry agencies. Follow-up It is hoped that this Forum becomes the first of a series on the same subject. The participants expressed their interest and need to have sub-regional meetings every 18 to 24 months to update colleagues on their forest policy implementation experience, share breakthroughs, good practice, and lessons learned. UNEP and the World Bank are now looking for African institutions to take over responsibility for future sub-regional Forum meetings. vii African Forest Policy Forum-Proceedings Information Dissemination At this stage, the summaries of the case studies presented at the Forum are published in English in Volume 1. A French version will become available at a later stage. The case studies in full are published in the language in which they were presented at the Forum in Volume II. A World Bank Technical Paper on good practice in forestry policy implementation in Sub-Saharan Africa, based on the Forum findings, is in preparation. viii Listing of Country Papers by Theme 1. Policy and Legislative Reforms Forest Management Planning Based on Successful Pilot Operations--Benin Forest Resources Management to Sustainably Satisfy National Household Energy Requirements-Chad Collaborative Management of State-Owned Gazetted Forests--Cote d'Ivoire Eliciting People's Support to Fight Poaching--Gabon Putting Forest Policy Into Practice: Interim Measures to Control Illegal Timber Harvesting Outside Forest Reserves--Ghana Coordinated Management of Forest Reserves and Peripheral Agricultural Lands-Guinea Transmara Forests: Conservation and Management Issues-Kenya Spontaneous Growing of Trees by the Private Sector Responding to Market Demand--Madagascar Participatory Formulation of the National Forestry Policy--Madagascar Stakeholder Participation in, and Restructuring of, Forestry Research Management--Malawi Household Energy Strategy: One Element of the Overall Forestry Policy--Niger Participatory Forest Policy Reform-Senegal Public Sector Management of Indigenous Forests for Sustainable Timber Harvesting--South Africa Community-Based Natural Forest Management--Tanzania Donor Coordination in the Forestry Sector--Tanzania Promoting Community-based Reforestation and Agroforestry--Zaire Institutional Reforms and Activities to Allow Local Participation in Forest Management-Zimbabwe The Role of the Private Sector in the Sustainable Management and Development of Forests in Sub-Saharan Africa 2. Farmer/NGO/Local Community Participation Forest Management Planning Based on Successful Pilot Operations--Benin A Pilot Operation To Develop a Community-Based Woodland Management Model--Burkina Faso Agroforestry as a Tool to Improve Natural Resources Management--Central African Republic Forest Resources Management to Sustainably Satisfy National Household Energy Requirements-Chad Collaborative Management of State-Owned Gazetted Forests-Cote d'Ivoire Eliciting People's Support to Fight Poaching--Gabon Putting Forest Policy Into Practice: Interim Measures to Control Illegal Timber Harvesting Outside Forest Reserves-Ghana Coordinated Management of Forest Reserves and Peripheral Agricultural Lands--Guinea Using Butterfly Biodiversity for Income Generation--Kenya Transmara Forests: Conservation and Management Issues-Kenya Participatory Conservation of Coastal Indigenous Forests-Kenya Community Participation in the Introduction and Establishment of Multipurpose Tree Species--Kenya Participatory Formulation of the National Forestry Policy-Madagascar Environmental Rehabilitation of Refugee Impacted Areas--Malawi Stakeholder Participation in, and Restructuring of, Forestry Research Management--Malawi Participatory Natural Resource Management-Mali Restoration of Highly Degraded and Threatened Native Forests--Mauritius Household Energy Strategy: One Element of the Overall Forestry Policy--Niger Participatory Forest Land Use Planning - Cross River State--Nigeria Participatory Forest Policy Reform--Senegal Community-based Youth Participation in the Rehabilitation of Fragile Areas--Sierra Leone Adopting a Farming System Approach to Facilitate Participatory Forestry-Tanzania The Role of NGOs in Facilitating Community Participation in Forest Conservation--Tanzania Community-Based Natural Forest Management--Tanzania Reforestation of Refugee Camps -West Nile- Lessons Learned from Implementation--Uganda Promoting Community-based Reforestation and Agroforestry--Zaire Local Participation and Benefit Sharing in Wildlife Management - The CAMPFIRE Experience-Zimbabwe Institutional Reforms and Activities to Allow Local Participation in Forest Management-Zimbabwe ix African Forest Policy Forum-Proceedings 3. Private Sector Participation Forest Management Planning Based on Successful Pilot Operations--Benin Forest Resources Management to Sustainably Satisfy National Household Energy Requirements-Chad The Private Sector in sub-Saharan Africa-Is it Able to Take up the Challenge of Sustainable Forest Management? -With emphasis on Gabon- Processing and Marketing of Non-Traditional Wood Species-Ghana Rehabilitation of Cement Factory Quarries-Kenya Private Sector Participation in the Government Woodfuel and Afforestation Program-Kenya Integrating Tree Cash Crops in Agricultural Production Systems--Kenya Spontaneous Growing of Trees by the Private Sector Responding to Market Demand-Madagascar Participatory Formulation of the National Forestry Policy--Madagascar Stakeholder Participation in, and Restructuring of, Forestry Research Management--Malawi Integrated Industrial Forestry: The Case of The Usutu Pulp Ltd.--Swaziland The Role of the Private Sector in the Sustainable Management and Development of Forests in Sub-Saharan Africa 4. Capacity Building Forest Management Planning Based on Successful Pilot Operations-Benin A Pilot Operation To Develop a Community-Based Woodland Management Model-Burkina Faso Forest Resources Management to Sustainably Satisfy National Household Energy Requirements-Chad Collaborative Management of State-Owned Gazetted Forests-C6te d'Ivoire The Private Sector in sub-Saharan Africa-Is it Able to Take up the Challenge of Sustainable Forest Management? -With emphasis on Gabon- Coordinated Management of Forest Reserves and Peripheral Agricultural Lands--Guinea Participatory Conservation of Coastal Indigenous Forests--Kenya Stakeholder Participation in, and Restructuring of, Forestry Research Management-Malawi Capacity Building in Local Communities for Sustainable Resource Management-Mali Participatory Natural Resource Management--Mali Participatory Forest Land Use Planning - Cross River State-Nigeria Community-based Youth Participation in the Rehabilitation of Fragile Areas--Sierra Leone Adopting a Farming System Approach to Facilitate Participatory Forestry-Tanzania The Role of NGOs in Facilitating Community Participation in Forest Conservation--Tanzania Donor Coordination in the Forestry Sector--Tanzania Reforestation of Refugee Camps -West Nile- Lessons Learned from Implementation-Uganda Local Participation and Benefit Sharing in Wildlife Management - The CAMPFIRE Experience-Zimbabwe Institutional Reforms and Activities to Allow Local Participation in Forest Management-Zimbabwe x OPENING ADDRESS Mr. Cheikh Omar Sow Deputy Director and Deputy Regional Representative Regional Office for Africa, UNEP Mr. Chairman, Distinguished Guests, Ladies and Gentlemen, Good morning! on behalf of the Executive Director of UNEP, Ms. Elizabeth Dowdeswell, I welcome you all to Gigiri, UNEP's headquarters in Nairobi. Ladies and Gentlemen, Two years ago, the World Bank and UNEP jointly organized a workshop with 65 participants representative of the key players in the African forest sector including governments, donor agencies, NGOs, the private sector and academia to discuss the key issues and challenges confronting the forest sector in Africa, as well as the action needed to address them. Today, this august assembly will continue the fruitful dialogue and the momentum built two years ago. Ladies and Gentlemen, Africa has 1,137 million hectares of forest and other woodlands of which 545 million hectares or 48 percent are covered with forests and 592 or 52 percent are covered with other wooded land (which includes other formations such as woody vegetation consisting of open woodland, scrub and bushland, forest under shifting cultivation, etc.). Africa is therefore endowed with forest and woodland resources which occupy a prominent position in the world's land resources and offer a wide spectrum of biological diversity habitats rich in genetic resources. Forests and woodlands contribute significantly to Africa's economic and environmental security. They support many people - farmers, herders, rural communities and forest dwellers and also provide important environmental services such as watershed protection, and constitute a major source of income, employment and capital. The poor depend on forests for their basic needs, including food, fiber, fodder, building materials and fuelwood. Also the continent's forest resources, especially the tropical moist forests, provide benefits to the global community in the form of biological diversity, genetic material and carbon sequestration. Mr. Chairman, Africa is witnessing unprecedented rates of deforestation and degradation of forests and woodlands which have serious social and economic implications for the welfare of both present and future populations in Africa as well as the world community at large with respect to the vital role of forests in the global ecosystems or biosphere. xi African Forest Policy Forum-Proceedings Globally, deforestation and degradation of forest and woodland resources have direct impact on the global recycling of greenhouse gases, thus leading to the release of billions of tons of greenhouse gases which in turn causes global climate change and global warming. Ladies and Gentlemen, Although there is a widespread awareness of the impact of deforestation and degradation of forests and woodlands on the social, economic and environmental development of the continent, the integration of these ecosystems in the development of policies, strategies and programmes continues to be taken lightly by policy-makers and planners. In some African countries this is due largely to the fact that capacities for environmentally sound management and sustainable use of forests and woodlands are still weak. As a result, those aspects of development that have impacts on the forests and woodlands and consequently, on the productive capacity and human welfare as well as on the release of greenhouse gases which lead to global warming are not given the attention they merit. Hence, the urgent need for awareness raising and consensus building that would lead to the development of policies, strategies and programmes required to curb uncontrolled forest resource depletion and degradation and to the promotion of environmentally sound management and sustainable use of the forest resources in Africa. Mr. Chairnan, This meeting comes at a time when UNEP has its Forest Policy and Proposed Action Programme for the period of 1996 - 2000 approved by Management. The 3rd session of the Intergovernmental Panel on Forests will meet in Geneva next week to discuss crucial issues on how to manage forests sustainably. My colleague, Mr. Bai-Mass Taal will give a comprehensive and in-depth presentation on this. Still, I look forward to this Forum to provide policy options and to identify successful practices on Sustainable Forest Management practices in Africa. Ladies and Gentlemen, The issues to be discussed at this meeting, such as policy and institutional reform, private sector and local communities' participation for sustainable forest management are very important and timely. Partnership and participatory approaches shall be highlighted. This meeting, again like the previous one, provides a mechanism for such cooperation, and UNEP is privileged to be associated with it. One important factor for achieving sustainable development is the participation of all stakeholders, embracing all sectors, as called for in Agenda 21: "One of the major challenges facing the world community as it seeks to replace unsustainable development with environmentally sound and sustainable development, is the need to activate a sense of common purpose on behalf of all sectors of society. The chances of forging such a sense of purpose will depend on the willingness of all sectors to participate in genuine social partnership and dialogue, while recognizing the independent roles, responsibilities and special capacities of each." xii Opening Address Ladies and Gentlemen, I hope this Forum is not another talking shop. I expect the conclusions of your meeting will lead to concrete actions. May I remind you of the Committee on Forests of AMCEN which is another mechanism created by the African Ministers of Environment to advise on forest issues. There should, therefore, be a strong linkage between the African Forest Policy Forum and AMCEN. In concluding, Mr. Chairman, I would like to reaffirm the strong, continuing commitment of UNEP in partnership with others to support sustainable development in Africa. We must ensure that African forests be sustainably managed, and also that Africa's rich natural heritage is protected. I thank you for your attention, and wish you a fruitful meeting. xiii STATEMENT ON THE INTERGOVERNMENTAL PANEL ON FORESTS Mr. Bai-Mass M Taal Senior Programme Officer, Terrestrial Ecosystems Regional Office for Africa, UNEP Mr. Chairman, Distinguished Colleagues, It is a great pleasure for me to be with you today at the start of this important workshop, the WB/UNEP African Forestry Policy Forum for Sustainable Forest Management. For this topic is at the very heart of the practical agenda of the Intergovernmental Panel on Forests (IPF) which I have the honor to serve as a technical adviser. The Origins of the Intergovernmental Panel on Forests Many of us here today were involved in the process of preparation for the United Nations Conference on Environment and Development, commonly termed the Earth Summit, held in Rio de Janeiro between 3 and 14 June 1992, and some of us participated in the Summit itself. You will remember that forests, and what to do to promote their conservation and sustainable use, was one of the issues debated in considerable detail. This was understandable, for forests are important in many ways. People, policy makers and politicians all over the world have become increasingly interested in and concerned about forests and issues related to forests since the early 1 980s. Deforestation, conservation and use of genetic resources and biological diversity, the contribution of forests to reduce global warming, the fate of indigenous forest dwellers, international trade in forest products, etc. are no longer topics of interest only to scholars and professional specialists, but are being debated and discussed in the media, in policy and political fora, on the street, in schools and at home. People are engaging themselves and their political representatives in actions aimed at the sustainable management of forests, maintaining or enhancing the contribution of forests to economic development and employment generation, tree planting for the re-greening of urban and rural areas, trade boycotts, defending the rights of local communities, etc. on a scale never seen before. At the same time, we all know that many forests have not been used sustainably, that deforestation has swept away undiscovered biological wealth, and that pressures in many regions continue to mount. What should be done? How can sovereign states be assisted to make the best use of these assets, within their own strategies for sustainable development? What should the world community do? Forests also occupied a prominent position in the international debate at the United Nations Conference on Environment and Development (UNCED) held in Rio de Janeiro in June 1992. Two documents were dedicated entirely to forests namely Chapter 11 "Combating Deforestation" of Agenda 21 and the "Non-legally binding authoritative statement of principles xiv Intergovernmental Panel on Forests for a global consensus on the management, conservation and sustainable development of all type of forests", commonly referred to as the Forest Principles. The Forest Principles are very important. They are the first global consensus on the management of the world's forests. They are extended by other agreements from Rio, including chapter 1 1 of Agenda 21 on Combating Deforestation. They are an important starting point. The debate on forests initiated prior to and during UNCED continued with increasing intensity after the Earth Summit. Governments engaged in a series of national, bilateral and global initiatives; the UN agencies established special interagency arrangements for cooperation on forests and forestry issues; and NGOs, the private sector and other major groups engaged in activities related to sustainable forest management and cooperation with the UN Commission on Sustainable Development (CSD). These initiatives helped to further clarify the issues and provided the basis for added consensus on options, opportunities and international cooperation on forests. In April 1995, during the preparations for the Third Session of the Commission on Sustainable Development (CSD), it became clear that there would be value in an in-depth discussion of forest issues among governments, international agencies and NGOs. That was why the CSD decided, at its Third Session, to establish the open-ended ad hoc Intergovernmental Panel on Forests - which, again for brevity, is referred to as the IPF. The IPF's task is to recommend specific measures that follow up the Earth Summit's agreement on the Forest Principles, the Conventions, and Agenda 21. Mandate of the Intergovernmental Panel on Forests The CSD decided that the Panel should consider the following main interrelated categories of issues: (a) Implementation of UNCED decisions related to forests at the national and international level including an examination of sectoral and cross-sectoral linkages. (b) International cooperation in financial assistance and technology transfer. (c) Scientific research, forest assessment and development of criteria and indicators for sustainable forest management. (d) Trade and environment relating to forest products and services. (e) International organizations and multilateral institutions and instruments including appropriate legal mechanisms. Within these five categories the commission elaborated a set of eleven more detailed Programme Elements as a basis for deliberation by the Panel. These are: (a. 1) progress through promotion of national forests and land use plans (a.2) underlying causes of deforestation (a.3) traditional forest related knowledge (a.4) afforestation, reforestation and the restoration... fragile ecosystems affected by desertification, drought ... pollution. (a.5) needs and requirement... countries with low forest cover (b) efficient and coordination ... assistance ... transfer... technology... financial resources. (c. 1) assessment ...scientific knowledge...valuing multiple benefits xv African Forest Policy Forum-Proceedings (c.2) criteria and indicators (d) trade ... environment ... cost internalization ... certification and labelling. (e. 1) institutions ... instruments (e.2) legal mechanisms You will note that this agenda starts from what has already been agreed internationally on, and how far the actions called for at Rio are being taken. It sweeps through machinery - scientific, managerial, financial and technological. It looks at trade. Only after all these have been evaluated does it turn to such things as the role of institutional machinery, agreements and Conventions in delivering what the nations want and the world needs. I have high hopes for the IPF process. I believe that the Panel can: (a) send a clear message about the present state of forests in the world, and the need for continuing action to spread sustainable management practices; (b) improve understanding of how to measure sustainable forest management, defining clearly what needs managing, how, by whom and for whose benefit; (c) clarify responsibilities for better management of forests and improve the quality and coordination of international support; and (d) establish a mechanism that will help the international community to continue to discuss forest issues. How will the EPF Do its Job? The Panel's Programme of Work is complex and broad in scope, and is expected to be completed in a very limited time frame as it has submitted a progress report to the CSD in 1996 and a final report to the Fifth Session of the CSD in 1997. In conducting its work, the Panel will consider the outputs of a large number of ongoing processes and initiatives. The Panel draws upon the expertise and resources of relevant organizations within and outside the UN system, as well as from all relevant major groups. The work of the Panel is supported by a small Secretariat, established within the Division of Sustainable Development of the UN Department for Policy Coordination and sustainable Development (DPCSD), and funded by voluntary extra-budgetary contributions, either in cash or in kind. In addition, meetings of experts, sponsored by one or more countries, international organizations, and major groups, would also contribute to the Panel's work, particularly on issues that need further analysis and elaboration. In order to ensure coherent support from the UN System, an informal Interagency Task Force on Forests has been formed to contribute to the work of the Panel. At a meeting of the Task Force held in July 1995, the organizations agreed to take the lead for the different Programme Elements. Expected Outputs and Results of the Panel's Work Although it is expected that the Panel will make substantive progress towards international consensus in all areas within its mandate, the eleven Programme Elements represent priority issues with a varying degree of maturity of the debate and in the need for further clarification. Some issues have already been discussed for years and may only need reconfirmation of agreements reached at the technical level or in other related intergovernmental fora, while others have emerged only recently and may not reach conclusion within the time frame established for the Panel. Concerning matters on which the need for further clarification xvi Intergovernmental Panel on Forests and debate may exceed the time available, the Panel is expected to set the stage for a future course of action. It is hoped that the Panel's deliberations will result in, among other things, improved national forest policies and development strategies at the national level; better coordination and enhanced quality of intemational cooperation; new approaches to forest resources assessment including social and economic values of forest resources; and improved understanding of environmental implications of harvesting and trade of forest products. Let me conclude these remarks with a few words about the contribution of the present Forum meeting. Above all, I hope that it will be action-oriented and practical. I hope that it will suggest some answers to a number of key questions on issues relevant to forests in Africa. UNEP, the Regional Office for Africa, should sensitize its clients to fully participate in this process and have consultations for a common position. Other Regions have already started developing a common position. I thank you for your attention. xvii C ountry Papers (Summaries) FOREST MANAGEMENT PLANNING BASED ON SUCCESSFUL PILOT OPERATIONS BENIN Mr. Mahouna Tchiwanou, Forester/Director, Forest Management Section Natural Resources Management Project Context In the early 90s, the forest resources in Benin showed a high degree of degradation, mainly attributable to a long-running erratic style of resource management. Despite the fact that 60% of the country is covered with forests, timber production fell short of national demand. Traditional fanning practices contributed to, and aggravated, the fragility and marginality of the ecosystem, especially when coupled with a disorderly agricultural colonization. In spite of regulations concerning nature conservation and protection, and game hunting, wildlife was being persecuted and its natural habitat destroyed. Wildlife has now taken refuge in National Parks and Reserves, but even there it is subject to a destructive hunting. Livestock farming is essentially transhumant. The animals are let to pasture inside gazetted State forests which contain some high value pasturelands and rivers. Bushfires are frequent as farmers have the practice of starting bushfires for various reasons such as to facilitate hunting, clear the fields for agricultural production, renew pasturelands, get a clear patch around their houses for security purposes, etc. The Intervention and its Objectives Government approved a Natural Resources Management Project, conceived as an instrument to test new participatory approaches in natural resources management, and propose policy and institutional reforms that would sustain new resource management programs based on the outcome of successful and innovative pilot experiences. The Project started in 1992. Its main component was concerned with forest management, with field activities focusing on the Government forest reserves. Main Activities Natural forest management operations have been implemented in 3 gazetted forests covering 268,000 ha and involving 320,000 people within or around these forests. Project activities were most advanced in the forest of Tchaourou-Toui Kilibo (TTK), a 50,000 ha area, with agricultural encroachment estimated at 30%. Forestry data was collected and management plans were designed accordingly. At the same time, the local communities were encouraged to form themselves into community groups, African Forest Policy Forum-Proceedings which would have the responsibility of implementing the plans, and would benefit from forest- based income-generating activities. TTK forest manaeement plan: The TTK forest was organized into four management units, each under the responsibility of a group of villages. Village-, Management Unit- and whole Forest-Committees were forned. The boundaries of the agricultural zones within the forest area were to be identified with the participation of the community. The forest was also to be enriched with 80% survival of planted trees. Forest fires were to be controlled. The formation of private enterprises was encouraged to allow to take advantage from a large number of forest products and employment opportunities, such as timber harvesting, grazing, cultivation, honey and fruit production and collection, plantation works, etc. The establishment of enterprises was accompanied by an adult education scheme to sensitize the population on the potential benefits and the mechanisms for a successful operation. An innovative tax collection mechanism, less susceptible to corruption, was put in place to levy agreed upon fees on forest-related activities. The Project Unit was to collaborate with technical units of various national agencies working on forest-related activities as part of their routine mandate. Results On the policy front, the project initially had mixed results. A new forest policy was approved and adopted by Government in 1994, and a new forestry law was enacted. The overarching goal of the policy is to achieve better conservation, and rational management, of the forest resources to ensure their continued existence, and guarantee sustainable forest production benefiting the local populations. Government also initiated a whole process of institutional capacity building. However, the forest policy and forest law were both too general and vague to have any meaningful impact on the ground. Thus, the Project concentrated on practical examples of what good and pragmatic forest policies and regulations should be able to facilitate, as in the case of the TTK forest management plan. As an outcome to the implementation of the TITK management plan, forest encroachment was almost totally stopped: the boundaries of agricultural zones within the forest were determined, and fields located outside such boundaries were voluntarily abandoned by the farmers. Over 3,000 hectares of forestlands were enriched, and forest fires were drastically reduced. The community groups have formulated rules to govern the use of the forest, the creation and management of forest-based enterprises, as well as the constitution of a guarantee fund that would help interested groups obtain external financing. These rules were integrated in a management plan that was recently approved by the Council of Ministers. Recently, the ITK villages stood up firmly in defense of their forest assets when loggers and collectors of fruits who had obtained exploitation pernits prior to the approval of the management plans, tried to enforce their rights to use the forest according to past practices. 64 enterprises are in the process of being formed in several forest-related areas. The most advanced enterprise started the process of buying a $30,000 portable saw from the Project. It already has a well established sale outlet in the town nearest to the forest. The adult education 2 Country Papers-Summaries scheme touched about 1000 people, 364 of whom can now read, write, and account. An equivalent of $27,000 has been set aside for the guarantee fund through the payment of a share of traded forest produce, and forest taxes are being paid regularly. Very innovative and pragmatic decrees to allow for implementation of forest policy and law were shaped on the basis of the participatory TTK forest management scheme, and approved by Benin's Council of Ministers. Lessons Learned A posteriori, key success factors were identified as follows: (a) A relatively good potential for forest-based economic activities in TTK which increased local people's willingness to participate; (b) The good quality and commitment of Project staff, and the technical assistance provided; (c) The timeliness and quality of Project supervision; and (d) The continued dialogue between the Project administration, the co-financiers, and the decision makers in Government. 3 African Forest Policy Forum-Proceedings PILOT OPERATION TO DEVELOP A COMMUNITY-BASED WOODLAND MANAGEMENT MODEL BURKINA FASO Mr. Issouf Soulama, Inspector of Water and Forests, Ministry of Environment and Water Context Burkina Faso's domestic energy needs have been mainly met from its forest resources which became severely overexploited and degraded. In the mid 1980s, the country opted for the management of natural forests to correct the situation and make possible a sustainable fuelwood production. A forest policy was drafted calling for a coherent and participatory forest management program, tailored to the various socio-ecological zones of the country. The Intervention The "Natural Forest Management for Environmental Protection and Wood Production" Project was designed to implement the forestry policy in selected natural forests, and supply the city of Ouagadougou with its needs in fuelwood. The Project promoted a participatory approach to forest management and had the long-term goal of turning it into a self-financing operation. It had three phases which started in 1986, 1990, and 1994. The Project was to implement activities for the sustainable management of the gazetted Nazinon, and some other forests; build institutional capacity to formulate, implement, and monitor management plans; and contribute to the development of a national strategy/model for a community-based natural resources management. Several other donors and NGO-funded pilot operations were being implemented, in parallel to this Project, to define the national strategy. Main Activities The Project's sustainable management framework hinged on technical studies, consultations among all stakeholders, reforestation by direct seeding, construction of a forest track network, fire protection, and farmer training to improve their technical knowledge. The local communities, whose participation was being sought for the design and implementation of sustainable forest management, were briefed on the terms of the collaboration with the forest Administration through a series of meetings and other means of communication and information exchange. An awareness raising campaign was conducted to sensitize the public to the benefits of sustainable management of forest resources. And, the local rural population was encouraged and assisted to form community groups. 4 Country Papers-Summaries Results The Project developed a forest management and production model which aimed to optimize forest use. The model consisted in the felling of 50% of the standing marketable timber, reforestation of degraded areas, enrichment of production parcels, and fire protection. A detailed management map was produced. The model inspired other similar projects such as RPTES, PNGT, etc. The model brought changes on all fronts: Technical: Wood was priced at $3.22/stere, distributed as follows: 38% ($1.22) as loggers' wages; 12% ($0.4) to be put into a community investment fund; 31% ($1) to be put in a forest management fund to ensure self-financing; and 19% ($0.6) to pay off the felling permit (as tax to replenish Government treasury). Social: It allowed the communities to take responsibility for the management of their traditional lands. It helped resolve outstanding conflicts among crop producers and livestock farmers when forest and agricultural lands were delineated. It encouraged several community development investments in schools, wells, cereal banks, and the purchase of agricultural and forest implements to be used by the collectivity. But most important was the formation of community groups. Economic: The Project improved household income and incited the development of rural markets. The commercial forest production contributed $1.2 million to the communal fund by 1995, which helped mechanize and modernize the agricultural production. The Project supplies Ouagadougou with one quarter of its needs in woodfuel. Ecoloaical: The Project helped stop the degradation, and improve the management of about 250,000 ha of natural forests, by checking bushfires, and reducing illegal wood cutting. Implementation Difficulties A number of issues, some of which could have been addressed at Project design, slowed down the implementation progression. The issues included: (a) The high illiteracy and low technical knowledge of the Project communities which slowed technology transfer and the adoption of new management concepts. (b) The precariousness of the forest road network which hampered the flow of forest produce. Remote cooperatives were less attractive to fuelwood distributors which took advantage of the situation and offered a lower price than set by Government. (c) The absence of a legal framework that supports community-based forest management schemes. This was addressed at a later stage and a new forest legislation was approved in 1996, allowing Government to legally contract local communities for the management of forest resources according to established management plans. (d) An increased and unfair competition from fuelwood producers operating in areas under non- sustainable management, outside the Project area of operation. (e) The fixed fuelwood gate-price which was not revised and amended over time, and a wood trade network that exercised a monopoly over the wood distribution, wholesaling and retailing business. s African Forest Policy Forum-Proceedings AGROFORESTRY AS A TOOL TO IMPROVE NATURAL RESOURCES MANAGEMENT CENTRAL AFRICAN REPUBLIC Mr. Gustave Doungoube, Director General, Directorate of Environment, and Mr. Pierre Geba-Mano, Director General, Regional Services Ministry of the Environment, Water and Forests Context During the last 20 years, demographic pressure, a slash-and-bum style of agriculture, exploitive production of fuelwood, and economic setbacks have taken their toll on the natural resources around the capital, Bangui, causing severe resource degradation. The Intervention and Main Activities To remedy the situation, Government, in 1992, activated the Agroforestry Component of the Natural Resources Management Project. The stated objective was to define an integrated rural forestry program based on participatory forestry to stem the process of degradation caused by the slash-and-bum agriculture, exploitive fuelwood production, and bushfires. The agroforestry activities hinged around the following: (a) Conducting campaigns to sensitize all stakeholders to the benefits of agroforestry and encourage farmers to adopt and practice it; (b) Establishing and managing nurseries and agroforestry plantations, including the distribution of free improved seed; (c) Formulating a Forest Action Plan; (d) Conserving forest resources; and (e) Disseminating the use of improved ovens. Preliminary Results The start of the Project was a little bumpy as the farmers and local communities were still viewing foresters as oppressors. The Project's participatory approach, however, helped instate an environment of progressively growing trust. Farmers were increasingly encouraged to establish agroforestry plantations, the number of which increased by 39% in 1995 in comparison with 1994. Improved agroforestry seed was distributed to farmers. Farmers have employed their nurseries for the production of vegetable seedlings as well for immediate financial gains. 6 Country Papers-Summaries The Project's participatory approach led to the institution of regulations by the Project and Administration authorities, in agreement with the village chiefs, governing the production and management of some woody and non-woody species. The use of improved ovens was readily adopted, and has doubled in 1995 as opposed to 1994. Village credit activity and credit reimbursement increased tremendously (by 83% and 69%, respectively) in the last year, the latter being a direct effect of sensitization campaigns. The current situation of undefined land tenureship, and role and responsibilities of the local communities in the management of natural resources, has been identified as an issue that must be addressed for the ultimate success of the Project. Lessons Learned (a) Credit reimbursement was of some concern. The need was felt to devise a monitoring mechanism inciting farmers to honor their debts. (b) The next step in the Project must allow for legislative reforms to improve agroforestry revenues, and capacity building of local communities to help them carry out their management duties and responsibilities. (c) Government should allow the local communities to know and question the management plans of the State forest resources. 7 African Forest Policy Forum-Proceedings FOREST RESOURCES MANAGEMENT TO SUSTAINABLY SATISFY NATIONAL HOUSEHOLD ENERGY REQUIREMENTS CHAD Mr. Abdel-Hamid Mahamat Ai, Co-Director Directorate of Oil, and New and Renewable Energies Ministy of Mines, Energy, and Oil Context In Chad, 90% of the total national energy consumption comes from fuelwood. The forest resources which provide the much needed woodfuel are irrationally and carelessly exploited. The impact of the Sahel's periodic droughts, desertification, frequent bushfires, high urban demand for woodfuel, and a lack of an affordable alternative source of energy, coupled with the irrational style of management, has resulted in the degradation and massive destruction of the forest resources. This threatened the sustainable supply of energy to urban areas, led to rapid soil erosion, and destroyed wildlife habitat. The Intervention and its Objectives In the early 90s, in response to the degenerating environmental situation, and the increasing need to supply the Chadaian population with affordable sources of energy, the Government drafted a strategy for domestic energy. This endeavor has resulted in the elaboration of a Household Energy Project, which is currently starting to be implemented. No results are available yet. The Project was designed to: (a) Restore and conserve the natural environment through a rational management of the natural resources; (b) Satisfy the demand for household energy in a lasting and reliable manner; and (c) Fight rural poverty through the provision of local employment opportunities, and an optimal distribution of revenues accrued from the wood resources. Main Activities The Project's implementation involves the following actions: (a) Transfer rights and responsibilities for providing basic forest management services to local community groups; (b) Develop transparent and accountable rural woodfuel markets; (c) Create incentives, and reliable tax collection mechanisms, for a judicious management of forest resources, whereby the proceeds largely remain within the local communities; 8 Country Papers-Summaries (d) Establish a private Project Management Unit (PMU) with delegated responsibilities from the Ministries in charge of forestry and energy to design and implement village-based natural resource management plans; (e) Distribute the financial returns from the woodfuel market in an optimal and equitable way among the concerned local communities, PMU, and the Government Treasury, which is hoped, in the medium term, to reduce rural poverty, and self-finance PMU; (f) Actively involve the local NGOs, and the private sector in the implementation of the Project; (g) Build the capacity of the Environment and Energy governmental agencies to improve policy formulation, and project monitoring and evaluation; and (h) Launch a legislative reform to regulate and ensure the efficient use and management of the country's wood resources. Uniqueness of the Project Similar projects are under implementation in Niger (since 1991) and Mali (1995). Nonetheless, the Chad Household Energy Project presents some unique features: (a) The private sector nature of the Project Management Unit; (b) The extent to which the forest resources management responsibilities are going to be transferred; and (c) The optimal distribution of returns from the woodfuel market among the stakeholders. 9 African Forest Policy Forum-Proceedings COLLABORATIVE MANAGEMENT OF STATE-OWNED GAZETTED FORESTS COTE D'IVOIRE Mr. Martial Me Kouame, Agency for the Development of Forests (SODEFOR) Department ofAgriculture, Water, and Forests Context Since 1960, degradation of the tropical forest resources in C6te d'Ivoire has been accelerating at a fast pace due to an intensive forest exploitation, a shifting cultivation style of agriculture, and an ever-increasing population pressure. The Government's style of forest management was haphazard, as no plans were drawn, exploitive of the forest, and repressive of the local populations. Despite a number of measures taken by Government to protect the forest resources, stop the degradation, and reverse the situation, no significant progress was achieved. The Interventions and their Goals Starting 1988, Government has been implementing radical and synchronized changes in its forest management approach for a better protection and more rational management of the forest resource base. 1988 itself, was designated "Year of the Forest". A 27-year span National Forestry Plan (NFP) was drafted and adopted by Government in 1988 as well, after which, several NFP-based forestry projects were designed and implemented to bring concrete solutions to the forest sector problems. In particular, the Bank-funded Forestry Sector Project started its operations in 1990. The goals of the National Forestry Plan were to: (a) Rehabilitate a forest area which could potentially sustainably produce 4 million m3 of timber; (b) Reestablish industrial forest plantations; (c) Reforest buffer zones and savannas; (d) Bring forest production down to realistic sustainable levels; (e) Promote an efficient forest-related industry; and (f) Conserve National Parks. Main Activities In 1988, the Year of the Forest, several major actions were taken by Government, namely: (a) An awareness raising campaign was conducted to sensitize the population and the general public on the seriousness of the environmental degradation and forestry problems faced by the country; 10 Country Papers-Summaries (b) A reforestation campaign was initiated, with a special focus on the participation of the rural youth; (c) Village firefighters committees were reactivated; and (d) Law enforcement activities were executed to check the spread of shifting cultivation. As to the main activities of the Forestry Sector Project, they were as follows: (a) Demarcating 1.5 million ha of gazetted forests; (b) Elaborating management plans for 700,000 ha of gazetted forests; (c) Reforesting 9,000 ha area of illegally encroached forest reserves; (d) Infrastructure building through a project to outfit the nearby Comoe National Park; (e) Researching sylviculture, agroforestry and industrial forestry plantations; (f) Renovating and equipping forestry schools; and (g) Institutional capacity building at the Department of Agriculture, Water, and Forests to enable its staff formulate a much needed forest policy, and plan, supervise and monitor Project activities; and at SODEFOR, to enable its staff conduct forest inventories, and draft wood commercialization plans. Project Work Modalities and Results The new forest resources management approach adopted by Government was to select one sole managing agency to prevent any managerial duplication and conflicts. Thus, SODEFOR was chosen. SODEFOR was subject to an organizational audit and was reorganized, according to the audit findings, into an administrative council, a general directorate, and regional offices meant to function as decentralized management hubs. To implement the Project, and rehabilitate the state-owned gazetted forests, SODEFOR adopted a new approach to forest management, the novelty being in drafting and implementing a 10-year plan for a sustainable forest production, and eliciting the active participation of the local communities. This participation was meant, in part, to allow each community reap substantial benefits from the forests situated within their traditional territory. All concerned groups (i.e. the administrative and political authorities, local communities, and forest squatters) were sensitized to the importance of the forest as an ecosystem, forest industry base, and source of employment; the forests' legal situation; significance of border demarcation; and the principles and benefits of participation in management. The participation of the local communities in forest resources management took place through farmer-forest committees, which were formed to assist SODEFOR in collecting and incorporating the local people's views in SODEFOR's management plans, and through sub- contracting by SODEFOR for the execution of forest works, such as forest and fauna inventories, nursery tree production, and reforestation of degraded forest areas. It is in this context that such groups as the forest laborers cooperatives, rural youths, small local businesses, and various firefighting groups came to exist. The greatest value of these groups was in that the competition that was generated permitted good quality work at less expensive prices. The local communities shared in the benefits generated by the sustainable production of the forest secondary products, such as the household use of leaves and medicinal plants, selling of snails and small game, and the artisanal woodworking. However, the modalities of the profit 11 African Forest Policy Forum-Proceedings sharing need to be better defined. A substantial financial return allowed the populations to view the forests in a more positive light, as gross returns for the period 1993-96 for all the groups together amounted to 2.8 billion FCFA (about $5 million) in Gagnoa Region. Rural development projects were also implemented for the benefit of the local population as a reward and compensation for allowing displaced families to settle on their lands. In light of all these happenings, the local populations, now, perceive the forest as a source of benefits, and as a development factor rather than an obstacle to it. 12 Country Papers-Summaries --THE PRIVATE SECTOR IN SUB-SAHARAN AFRICA-- IS IT ABLE TO TAKE UP THE CHALLENGE OF SUSTAINABLE FOREST MANAGEMENT? With emphasis on GABON Dr. B. Martin, Consultant, Expert on Tropical Forestry General Context throughout the African Continent The sustainable management of African Natural Tropical Forests (NTF) is subject to many constraints, despite of which, few private initiatives exist, albeit very weak. These constraints are: (a) Meaeer forests: less than 10% of the wood species are of international commercial value; (b) Highlv extensive production: Timber productivity does not exceed 0.4 m3/ha/year. (c) Slow natural forest reeeneration: A full rotation is about 40 years. (d) Short (10-15 years) and small concessions: Possibly the single most significant disincentive for sustainable forest management. Essentially concessionaires do not feel responsible and accountable for the future of their concessions. Inevitably, the subsequent concessionaire has to fell younger and younger trees to make profits. The current felling cycle is estimated at less than 25 years. (e) Inadequate forest management: Forest management is an area that has hardly been developed. (f) Deficient forest Administrations: weak and under-equipped, lacking sufficient authority, they almost never draw or follow-up on forest management plans. (g) Increasinglv obligatorv investment in the local processing industrv: which weighs heavily on the private logging companies budgets due to the latter's uncertain future. (h) The private sector is expected to integrate other concerns: such as biodiversity conservation, wildlife protection, social considerations, etc. in its forest management activities, which add to their financial burden, especially that private companies are not eligible for donor assistance. The Subsequent Impact on, and the Issues Facing, the Private Sector Keeping in step with the natural regeneration ability of the trees will reduce the current timber production by half if no other production factors change. Not to cut the customary production, while respecting the natural rotation, private companies have two options: either have larger concessions, or conduct more frequent sylvicultural activities on small concessions. In both cases, the private sector would be carrying the financial burden entailed in the sustainable management of forests, which might reach 2-3% of the company's turnover. The length of the concessions is closely related to the quantity and quality of timber that could be produced, which influences not only the growth of private companies, but also their mere existence. In the present situation of short concessions, a judicious forest management for 13 African Forest Policy Forum-Proceedings optimal profits entails better technical skills, stable and diversified wood production, and a high production conversion into value-added output. The future of the logging companies lies in their ability to supply a better and better performing timber processing industry. In this light, judicious forest operations and industrialization seem to be two inseparable elements of the sustainable management of forest resources. However, it is hard for the companies to absorb the related costs when the benefits are mostly not immediate. Again, as mentioned earlier, the private logging companies are increasingly required by law to invest in the local processing industry, the viability of which depends on a continuous and sufficient supply of timber. This supply is, in turn, influenced by the length of the logging concession, a catch-22 situation. On the brighter side, the required investment in the local timber processing industry might be the right incentive to reduce timber wastages and benefit from low quality trees that would not otherwise be felled. Thus, if benefits are to be reaped in the long term by all stakeholders, the private companies must have the assurance that they will still exist, and have the same concessions in which they have invested, in the long term. General Recommendations In many sub-Saharan African countries, the private sector is able to take charge of sustainable forest management as it is the only permanent presence in the field, is better equipped than other stakeholders, and owns the infrastructure. Nonetheless, up to now, neither governments nor donors have entrusted the private sector with such responsibility. This is not surprising when one realizes that mutual trust is somewhat lacking now. However, it is necessary to restore an environment of trust, without which any attempt at sustainable management is bound to fail. So now, governments and donors should reconsider, while the forests still have some commercial value. In parallel, the capacity of the forestry administration must be strengthened. It is proposed to create a National Bureau for Management (NBM), assisted by a group of internationally recognized experts, to conceive, analyze, and control the implementation of private forest management plans. A Regional Commission must also be created to examine, discuss, and approve, or disapprove of, these plans. It is recommended that those companies which volunteer to manage their concessions in a sustainable manner, which management plans are approved by the proper authorities, be registered under a "sustainable management" category for recognition and possible rewards or privileges to be granted, including a guarantee for longer concessions of 25-50 years, and eligibility for donor assistance. The role of the international organizations is crucial in making a success of delegating responsibility to the private sector for sustainable forest management. They could recognize the private sector as an important player in the sustainable management of forests, giving legitimacy to its role and needs, provide technical assistance to the private sector and the NBMs, and help finance the activities involved (inventories, equipment, supervision, etc.). 14 Country Papers-Summaries RECENT DEVELOPMENTS IN GABON Private Initiatives for the Sustainable Management of Forests In March 1995, the Compagnie Equatorialle de Bois (CEB) of Gabon adopted a sustainable forest management policy, seeking to process part of its timber production to reduce timber wastages, and to stabilize its timber production in step with its production and processing capacity. To that end, CEB acquired a modem 1,500 m3/month capacity mill and drier, and petitioned Government to guarantee longer concessions. CEB launched its initiative by setting up a special Management Unit, and conducting a forest inventory in its concessions with the objective of formulating an overall management plan. The plan will be submitted to the forest Administration for approval and concession classification under the "sustainable management" category. CEB's concessions include large numbers of young and heterogeneous Okoume spp. stands which would be the main source of timber for its mill. Great emphasis has been placed on monitoring and supervision of the planned forest operations to ensure that the most appropriate sylvicultural activities are chosen to get the most out of the Okoume trees. Seeking financial support to achieve its objectives, CEB has solicited the assistance of bilateral donors, mostly French. The company expects to be exempted from any government-imposed management charges. Other private companies in Gabon have followed suit in adopting a sustainable forest management policy and are likely to petition Government for longer concessions. Eco-labeling/Certification It is important for the private sector to freely market their products, hence, have their timber eco-labeled to reach markets which require such a label. The preceding certification process, and the eco-labeling are not simple administrative formalities, but entail additional expenses as the process should essentially be the responsibility of the private sector itself. A prerequisite to having the private sector able to persevere in a sustainable forest management qualifying for certification, is granting it longer concessions. Currently, 80% of the private sector's timber production is absorbed by the Societe Nationale des Bois du Gabon (SNBG) which has a monopoly of the Okoume market. Thus, in the majority of cases, private companies do not need to certify their concessions. However, with the development of the local timber processing industry, companies will need to acquire new markets, some of which might require timber certification. There will be a need then to adhere to a recognized certification/eco-labeling system. Results Unfortunately, the CEB's pioneer move towards private sustainable forest management has not been successful until now. Government did not agree to prolong the concessions, not even on a provisional basis, and no donor assistance was granted yet. All parties agree on the need for sustainable management but none is ready to commit. Nonetheless, something needs to be done quickly not to discourage the few current private initiatives. 15 African Forest Policy Forum-Proceedings ELICITING PEOPLE'S SUPPORT TO FIGHT POACHING GABON Mr. Adrien Noungou, Director of Wildlife Management, Ministry of Water and Forests Context Wildlife in Gabon is abundant and diversified. Nonetheless, its survival has been threatened by poaching. The many consequences of poaching were felt around the country. The impact was ecological, whereby the natural equilibrium was destroyed; economic, in the forrn of losses in fiscal and touristic receipts; and social, in that a natural and renewable source of protein was being destroyed, forcing the impacted communities to migrate to more propitious areas. Despite several measures taken by Government to check poaching, the problem expanded alarmingly, risking to totally decimate wildlife if no drastic changes were made. It became imperative to bring together representatives of all stakeholders, those who were affected by, and concerned with, poaching. The Intervention and Main Activities A colloquium convened in November 1994 to reflect on and analyze the serious situation that has resulted from the abusive and uncontrolled exploitation of wildlife. The meeting aimed at identifying options to check poaching. The participants included regional officials from different government Administrations, e.g. Water and Forests, Justice, Police, Army, and Lands; local and international NGOs; District chiefs; community leaders including those communities which lived in and around Protected Areas; and experts from other countries who shared and discussed their experience with poaching and its control. Government covered the transportation and subsistence expenses of those participants who traveled far. The meeting also provided a venue to sensitize the different participants to the danger and consequences of uncontrolled and abusive hunting. The presentations treated poaching; the legal and regulatory aspects of the battle against poaching, including alternative solutions; and the health hazards associated with eating poorly conditioned bushmeat derived from poaching. The meeting took place in a calm and relaxed environment, permitting all participants to express their views freely. Results Three Commissions sprang out of the meeting, which categorized the existing issues and formulated a set of recommendations. Government is now in the process of implementing these recommendations, mainly through the organization of workshops in the districts where poaching is a problem, focusing on involving the local populations as active partners in protecting wildlife. In parallel, villagers' associations are being formed under the auspices, and with the support, of the Water and Forests Administration to organize communities' involvement and input. 16 Country Papers-Summaries PROCESSING AND MARKETING OF NON-TRADITIONAL WOOD SPECIES GHANA Mr. Imad C. Berbari, Managing Director Specialized Timber Products Ltd. (STP) Introduction This case study shows how the introduction of non-traditional wood species to the market coupled with efficient and apt timber processing could yield higher financial profits without undue negative impact on the existing forest resources. Specialized Timber Products Ltd (STP), Ghana, is a private timber extraction and processing company. Over the last decade, STP was successful in exporting secondary processed products from so-called lesser-known/lesser-used wood species (LUSs), many of which are in plentiful supply, and at very interesting prices. This resulted in that STP's overall exports of timber kept increasing in volume and value, although the traditionally exported prime wood species such as Sapele (Entandrophragma cylindricum), Odum (Milicia spp.), and the Mahoganies (Khaya spp.) are close to extinction. This success was made possible through judicious investments in technology development and market intelligence. Background The continuous logging of prime timber species greatly reduced their stocks in the forests and, consequently, the quality of the extracted logs. In response to this situation, STP Ltd of Ghana took a crucial decision in the mid 1980's to introduce and market timber from lesser- used/known species (which are relatively more abundant than the prime species) on the world timber market. In parallel, STP was aiming to reduce wood processing waste through maximizing the recovery from logs and recycling wood processing residues. Actions Taken To accomplish the above, STP Ltd invested heavily in market research, the development of new processing technology, machinery, and product development and promotion. A series of experiments were conducted in collaboration with the Forestry Research Institute of Ghana (FORIG), and particular attention was paid to the following research areas: (a) Drying schedules for the LUSs; (b) The working properties of the LUSs; (c) Marketing and value-added product options for the LUSs; (d) Increasing processing yields from round logs and reducing waste; and (e) Options for commercial use of wood processing residues. 17 African Forest Policy Forum-Proceedings Results The intensive and extensive promotional drive carried out by STP has brought the LUSs to the attention of overseas buyers. The first resounding success was the promotion and marketing of Akasa (Chrysophylum spp.) in 1987. Since then, STP has promoted and marketed Koto (Pterygota macrocarpa), Chenchen (Antiaris africana), Dahoma (Piptadeniastrum africanum), and Ceiba (Ceibapentandra) on the international market. Currently, the FOB price per cubic meter on the international market for Koto and Akasa is almost at par with the price paid for some primary species and, in some cases, even higher. STP's pioneering work in the field of the LUSs, in collaboration with FORIG, yielded fruitful results, consistently improving the performance of the company. STP is pleased to state that it was among the first ten lumber exporting companies in Ghana in 1994, and among the best five exporters in 1995. The bulk of exports was made up of LUSs. Nationally, this has led to major increases in export earnings, thus increasing the contribution of the forestry sector to the general socio-economic development of the country. This has also secured the future of the wood processing industry in Ghana, since the LUSs are relatively much more abundant than the traditional wood species. In terms of protecting the environment, the utilization of LUSs is very desirable since it ensures the preservation of otherwise endangered species, and generally reduces pressure on the forest resource base. Costs As stated before, the company had to invest heavily in machinery and technology, in addition to setting aside a special budget each month to procure the wood raw material required for the research. The volumes needed to establish the drying programs, technical data, and processing the wood samples into the various suggested finished products, ranged from 300 to 700 m3, depending on the species. This amounted to about 050 million (about US $30,000 - 35,000) per species. Also, a 40 m3 kiln chamber had to be reserved exclusively for research purposes for about a year. The opportunity cost for using the kiln amounts to about US $32,000 (if used for drying Wawa, Triplochiton scleroxylon, for example). Other opportunity costs include machine time on the saws, molder, labor, freight charges (estimated at about US $27,000). It is not difficult to appreciate then that for each species promoted and marketed, close to US $100,000 would have been spent prior to it reaching the market. Recommendations It is recommended that multinational and donor agencies should seriously consider supporting forestry-related research institutions in the timber-producing countries to better assist the industry in promoting LUSs. As factory-based research can be very expensive, such support could be in the form of prototypes of processing machinery to simulate the actual situation in the wood processing plants. If this successful experience is to be replicated, the export policies, incentives and promotion activities need to be reviewed and corrected to create an environment conducive to investmnents in producing and exporting innovative wood products. The benefits of the reform process would be tremendous. 18 Country Papers-Summaries PUTTING FOREST POLICY INTO PRACTICE: INTERIM MEASURES TO CONTROL ILLEGAL TIMBER HARVESTING OUTSIDE FOREST RESERVES GHANA Mr. E. Kofi Smith, Technical Director, Ministry of Lands and Forestry Context The legacies of successive forest policy agendas had conspired by 1994 to produce a situation in which the farmers who tended timber trees on their farms no longer had any control over the harvesting of these trees, and no right to benefit from their conversion. This alienated farmers and caused them to increasingly indulge in unsustainable forest activities. The successive policy agendas since 1897 had led to this sorry state. It is noted that the first forest policy was essentially participatory, and local landowning communities were the clients of the Forestry Department. However, an imbalance crept in over the years, whereby the industrial and national interests took precedence over community interests. In 1993, illegal felling of timber trees on fanns soared due to the opening of a new roundlogs market in the Far East. What had been a lingering problem of unregulated, inequitable timber harvesting became a crisis. The situation had to be brought under control. The Intervention In 1994, a new Forest and Wildlife Policy was promulgated, promoting a return to forestry in the service of "all segments of society", and a commitment to local participation in forest management. Also, the Forestry Department was commissioned by the Ministry of Lands and Forestry to recommend appropriate measures to bring timber harvesting down to sustainable levels. These measures were to be jointly implemented by the District Forest Officers and local communities. Main Activities The Forestry Department responded by setting up a Working Group comprised of community chiefs, farmers, foresters, and timbermen (as representatives of the public and private sectors, and of the local communities) to analyze the situation and devise a new system to regulate timber harvesting on farms. A radical new set of "Interim Measures", based on new rules for timber felling, were formulated to regulate timber production. This enabled the Forestry Department, with the help of farmers, to monitor the movement of logs from stump to port. 19 African Forest Policy Forum-Proceedings The new timber felling rules revolved around the following points: (a) Farmers' power to veto tree felling on their farms; (b) A felling permit to be issued by a Forest Officer; and (c) A Conveyance Certificate authorizing the movement of logs. It will not be granted if outstanding disputes exist over, for example, compensation for crop darnages. Results The "Interim Measures" were launched in August 1995. In a one year period, they have had a remarkable impact: (a) Illegal logging has been almost totally stopped. (b) Farmers and landowning communities are now able to rightfully collect token fees and compensation payments at time of felling. (c) The timber industry is performing better as the legal timber operators have gained a measure ofjob security, and log prices have increased. (d) The resource base has been protected as timber production fell to levels considered to be sustainable. (e) The morale of the Forestry Department staff improved tremendously. (f) Government revenue collection from timber royalties quadrupled. In fact, the "Interim Measures" were originally designed to control logging for a short period of time, until long term management systems were installed. However, the Measures have proved so effective and useful that a move was made to instate them permanently. Implementation Problems and Lessons Learned Two problems arose during implementation, mainly, an initial resistance to the "Interim Measures" from the timber industry, and internal logistic problems in the Forestry Department which resulted in unnecessary delays in log production in some areas. Through the "Interim Measures" and related complimentary strategies, discipline and some degree of equity have returned to the forestry sector. Based on the 1994 Policy, the Ministry of Lands and Forestry is putting in place a new participatory framework for managing the off-reserve forest resource. The strategies by which this new, collaborative framework is being established are helping to increase farmers' benefits, transform the timber industry, reform the Forestry Department, and shape a new legislative framework. 20 Country Papers-Summaries COORDINATED MANAGEMENT OF FOREST RESERVES AND PERIPHERAL AGRICULTURAL LANDS GUINEA Mr. Thierno Oumar Diallo, Engineer at the Water and Forests Department Administration and Control of Projects Context The Guinean forests have been subject to a process of degradation encouraged by the prevalent land tenure system and the weaknesses of the Forest Administration. To address the situation, a National Forest Action Plan was elaborated and approved by Government in 1990, becoming the National Forestry Policy. It hinged on the new national strategy of economic liberalization and administrative decentralization. The stated goal of the policy was "to act against all factors that cause forest degradation", and its effective implementation depended on involving the entire population. The Intervention The World Bank-funded Forest Resources Management Project, initiated in 1987, had been identified as a priority investment by Government. The Project's main objectives of biodiversity conservation, and a sustainable forest production were to be achieved through the sustainable management of two gazetted forests (at Ziama and Diecke), which are the remnants of the dense humid Guineo-Liberian forest, with the full participation of the concerned communities to totally stop agricultural encroachments and uncontrolled game hunting inside the forests. The adopted strategy was to intensify agricultural production and improve agricultural productivity on the outskirts of the forests, and entitle the communities to partake of the benefits accruing from sustainable forest management. When it was realized that it was not possible to intensify agriculture without clarifying land tenureship rights, a component was added to devise and implement a pilot land tenure security scheme. Main Activities and Results The Project proposed to achieve its objectives of sustainable forest management through: (a) Institutional strengthening; (b) Training of selected Forest Administration staff, (c) Definition of main management zones inside the forests according to their state of degradation: Thus 3 zones were defined: For improvement, sustainable production, and protection; Game hunting was forbidden in the protected zone and limited in the other zones; and 21 African Forest Policy Forum-Proceedings (d) Implementing a pilot land tenure system (OPPFR). Moreover, as the solution to a sustainable management of the forest was found to lie outside the forest, some incentives were offered to the local communities to lessen the outside pressure exercised by them on the forest resources: (e) Giving priority to those farmers who have no agricultural lands in the peripheral zones to work on forest sylvicultural activities, which brought in a higher income than agriculture; (f) Gradually phase out the perennial crop plantations (coffee, cocoa) inside the forest by allowing farmers to continue to harvest but not authorizing crop husbandry operations; and (g) Resettling the villages considered to be located in fragile forest areas. So as to facilitate the implementation of a pilot land tenureship scheme, the following activities were designed: (h) Sensitizing the authorities and the communities on the objectives, principles, and strategies of the land tenureship activity; (i) Conducting land tenure surveys and socio-economic studies; and (j) Topography. This endeavor has resulted in Government promulgating a Code of Land Tenureship, officially recognizing private land ownership. The surveys and studies have demonstrated that there are sufficient agricultural lands, although their land use inhibits better productivity. However, a series of improper decisions has inhibited the progress of OPPFR, the most important being: (a) The current institutional environment is not favorable to the success of the land tenure pilot program; (b) The principal stakeholders, the local communities, are neither motivated nor apt to manage and supervise the pilot program. 22 Country Papers-Summaries REHABILITATION OF CEMENT FACTORY QUARRIES KENYA Ms. Sabine Baer, Research Biologist, Baobab Farm Limited Context The Bamburi Portland Cement Company, a cement factory, started its operation north of Mombasa, on the Kenyan coast, in 1954. It used limestone as raw material. The cement quarries, which were woodland expanses before excavation by the Company, covered an area of approximately 1,200 ha. With time, all topsoil was lost, and the land became barren and desolated, where nothing grew. The Intervention An agronomist, hired by the company to farm some of its lands to produce a continuous supply of food for the company's employees, was given charge of restoring the quarries' wastelands. Consequently, a food producing subsidiary, the Baobab Farm Ltd., was founded and became the driving force in the quarry rehabilitation scheme. Principles of, and Main Activities in, the Rehabilitation Scheme In light of the huge implied expenses and destruction of agricultural lands if it was opted to bring in sufficient top soil to cover and replant the quarries, the agronomist decided to work on a two-pronged rehabilitation plan without altering the prevailing edaphic conditions: (a) Reforestation with tree species that can withstand the existing harsh growing conditions; and (b) Growing fish in the brackish waters. Reforestation would transformn the landscape, and aquaculture would help defray the costs of the initial steps of rehabilitation, as fish grow fast and generate a quick economic return. Step by Step Ecosystem Restoration Ecosystem restoration activities started in 1971. The first step was to determine which tree species were most suitable to plant. Three species proved to withstand the difficult growing conditions: Casuarina equisetifolia, Conocarpus lancifolius, and the coconut palm. The Casuarina tree is drought and salt tolerant, and is host to many microorganisms which fix nitrogen from the air and make it available to their host along with other nutrients. This enables Casuarina to grow virtually without soil, and colonize badly devastated areas. The Conocarpus is a drought, flood and salt tolerant swamp tree and is host to microorganisms which are nutrient fixers, although to a lesser extent than in the case of the Casuarina. With time, better propagation and husbandry techniques were developed allowing for a larger production of, mainly, Casuarina which had a wide range of uses and helped ease the 23 African Forest Policy Forum-Proceedings pressure on the heavily exploited mangrove forests. Unfortunately, the decomposition of the Casuarina leaf litter was very slow due to a high protein content. However, with diligent observation, it was noticed that a local red-legged millipede feeds on the dry leaves and starts the conversion process into the precious organic matter. The millipede was introduced into the burgeoning Casuarina forest. Fish farming was not successful at the beginning. However, the initial failure stimulated research which resulted in the building of a Tilapia fish tank in 1980, with a production capacity of 3 5 tons per year. Various activities were added to the original restoration scheme, for their economic and ecological benefits: crocodile farming, and cultivation of rice and Nile Cabbage (Pistia stratiotes). Among the numerous benefits, one could cite: crocodile meat and skin, organic fertilizers production, biological filtration, and waste disposal. Game farming was also initiated by introducing indigenous elands and antelopes to the quarry's tsetse fly- and tick-infested bushlands. The selected species had a high resistance to local animal diseases. Keeping up with the original target of creating an ecologically and economically self- containing coastal forest, secondary tree species were selected with care. More than 200 species of indigenous coastal forest species have so far been planted. In order to diversify the forest into non-timber production, many forest species are being introduced for their valuable uses for honey production, edible fruits, ecolandscaping, food, habitat for animal life, medicinal and traditional value, and conservation purposes. Results After 25 years, the Casuarinas have fulfilled their task to transform the former harsh and hostile quarry lands into a lush forest with fertile soils and a balanced microclimate. The organic matter, humus, layer is now more than 10 cm thick where, before, no soil for planting existed. The oldest part of the rehabilitated landscape is open for eco-tourism since 1984, and is known as the "Banburi Quarry Nature Park". It attracts about 100,000 nature-loving locals and overseas visitors per year and has become a major income generator for Baobab Farm Ltd. Lessons Learned Experience with the indigenous timber species is slowly increasing. For instance, Casuarina propagation and husbandry technologies perfected at the Baobab Farm are now being used elsewhere to grow Casuarina as poles for the building industry. It is hoped that in the future this will lead to conserving some timber species and substituting them with the use of other equally appropriate species. 24 Country Papers-Summaries PRIVATE SECTOR PARTICIPATION IN THE GOVERNMENT WOODFUEL AND AFFORESTATION PROGRAM KENYA Mr. P.A. Diro, Forest Manager, PanAfrican Paper Mills (EA) Ltd. Context The importance of forests in Kenya's economy is critical, as fuelwood contributes 90% of the domestic demand in energy, and 75% of the national energy consumption. Approximately 2.7% of Kenya's land area is forested, 10% of which (about 160,000 ha) is covered with industrial plantations, consisting mainly of cypress, Cupressus lusitanica; pines, Pinus patula and Pinus radiata; and eucalypts. Forests are also source for timber pulpwood and poles, and their importance is paramount as water catchment areas, earth stabilizers, and habitat for wildlife. Rapid population growth has exerted heavy pressure on forested land through conversion into human settlement areas and agriculture. Demand on forest products and services increased tremendously. Trees have been also lost to illegal felling, insects and diseases, and frequent forest fires. 1988 projections indicated that demand for timber would increase three-fold over a 25- year period, starting in the late 1980s. It was feared that, unless significant changes were made in the timber producing and processing industry, there will be a strong reliance on large imports of timber and timber products to meet growing domestic demand. It became necessary to develop sustainable forest management plans. The Private Sector's Involvement in the National Afforestation Program The PanAfrican Paper Mills Ltd. (Panpaper) is the merger of two companies. It provides Kenya with its need in bleached and unbleached paper, and exports paper to neighboring and overseas countries, earning valuable foreign exchange. Panpaper started its operations in 1974 with an annual paper production of 45,000 tons. In 20 years, following a modernization and expansion program, paper production capacity has more than doubled, and is now at 97,000 tons per year. A machine producing high grade card boards, with a capacity of 30,000 tons per year, was expected to become operational before the end of 1996. Panpaper's pulpwood raw material comes from government-owned forest plantations. A long term timber license was issued by the government in the early 1970s, specifying the wood to be harvested and the areas set aside for felling. As per the terms and conditions of the license, Panpaper is under no obligation to replant trees. 25 African Forest Policy Forum-Proceedings However, as it was wise to do, Panpaper gave investment priority to reforestation programs, and support of government initiatives, to ensure the continued future local supply of its raw material. To ensure an efficient cooperation with government, there was need to secure: (a) An adequate and timely supply of good quality seeds of all species; (b) A proper and effective supervision of the plantation establishment program; (c) Protection of young tree plantations against damages by people, animals, and fire; and (d) The afforested areas not be converted to agricultural use. Other Collaborative Efforts Involving the Private Sector As improvements in timber yields and quality are critical to commercial success, research for better tree husbandry practices and better seed through breeding became an important part of the forest industry. In this spirit, Panpaper and the Kenya Forestry Research Institute (KEFRI) signed an agreement for a collaborative research project to develop Pinus radiata strains resistant to the needle blight disease. This would pernit the large-scale commercial production of this valuable and high-yielding wood species. Panpaper has also sought research partnerships with overseas institutions to further improve timber yields and quality. Results As a result of the collaborative afforestation initiatives, 23,000 ha have been planted with trees up to now, in comparison with 12,000 ha clear-felled since 1974. With respect to the research outcome, the Project has already succeeded in establishing pilot plantations of high quality Pinus radiata and two seed orchards. It is hoped to embark soon on the commercial planting of the disease resistant pine. The Project program is being expanded to encompass improvement of eucalyptus and other pine species. Lessons Learned It is strongly suggested that once the government's understanding of forest plantation development would allow a more open partnership with the private sector, and the respective areas of responsibility become well defined, a giant leap would be achieved towards improving the country's forest resources. 26 Country Papers-Summaries USING BUTTERFLY BIODIVERSITY FOR INCOME-GENERATION KENYA Mr. Ian Gordon, Manager, and Mr. Washington Ayiemba, Research Scientist Kipepeo Project Context The Arabuko/Sokoke Forest is of internationally recognized importance (ranked second in Africa for birds) because of its endemic and endangered species of birds (six species) and threatened mammals (three species). It is surrounded by a rapidly growing rural population that is hard pressed for land, jobs and income sources, and suffers much from damage to crops and livelihood caused by forest wildlife. The long term future of the forest depended crucially on the support of the local community and their leaders and politicians, and its conservation was found to be possible only if seen to be of benefit to them. The Kipepeo Project was designed to respond to this situation. Objectives of the Kipepeo Project (a) To link conservation and development through the sustainable utilization of butterfly biodiversity in the Arabuko/Sokoke Forest for the benefit of surrounding rural communities; (b) To help demonstrate that the forest can provide new and unexpected income sources and that it can have greater value as intact wildland than as land cleared for agriculture; (c) To help diversify coastal tourism by establishing a novel ecotourist attraction on the north coast through the development of an exhibit of live butterflies and other invertebrates of the Arabuko-Sokoke Forest; (d) To support conservation education activities relating to the Arabuko-Sokoke Forest; and (e) To provide employment, and earn export revenues from the Forest's butterfly biodiversity. Project's Sponsors The project is administered by the East African Natural History Society in partnership with the National Museums of Kenya. It was set up with a grant of US $50,000 granted by the UJNDP Global Environmental Facility NGO Small Grants Program in June 1993. This financed the employment of a consultant, socioeconomic surveys, construction of physical facilities, purchase of vehicles and basic running costs in 1994. A further GEF grant of US $25,000 was 27 African Forest Policy Forum-Proceedings received in 1995, together with US $4,000 from Brookfield Zoo. In 1996 US $57,000 has been granted by the IUCN Netherlands Committee to support an ecotourism and educational outreach program for the project. Export Earnings The construction of physical facilities and requisite ground work were completed in time for exports of butterflies to start on schedule in February 1994. A total of 10,262 pupae were exported in 1994 earning US $15,888. In 1995, 12,593 pupae were exported, earning US $18,286. Up to August 1996, 14,667 pupae have been exported, earning an estimated US $19,000. Total exports to mid 1996 stood at 37,522 pupae, earning more than US $54,000. The community have produced just over half the total number of pupae and have earned approximately Ksh I million (US $18,000). The ecotourism component earned an additional US $2,500 since October 1994. The educational outreach program established links with the Wildlife Clubs of Kenya and over 15 local schools visited the project. The project currently employs four contract staff and seven casuals, and benefits from the input of two volunteers. Community Participation 152 households are involved in the implementation of the project. They come from the Roka, Matsangoni, Mida and Mijomboni Sublocations on the eastern margin of the forest. In 1996 they formed themselves into 8 Self-Help Groups, each with 2 representatives who are now licensed to collect butterflies in the forest. The Self-Help Groups have been able to access donor funds for the construction of 16 water tanks, out of which 8 have already been completed. A community operation has also been started at Shimba Hills where seven community groups are now producing pupae for export. Problems Encountered (a) The forest is a highly seasonal environment with variable patterns of rainfall and this has resulted in occasional difficulties in procuring the butterflies; (b) There are cash flow problems arising chiefly from the fact that villagers are paid on delivery for the pupae they produce whereas payments for exports are frequently severely delayed; (c) There are various difficulties associated with the export trade including delays in transit which inevitably cause losses, and seasonal international markets which restrict potential year round production; and (d) The threatened de-gazettement of the Kararacha neighboring forest undermines the major objectives of the project and may mean that one third of the farmers trained by the project would no longer be able to participate. 28 Country Papers-Summaries TRANSMARA FORESTS: CONSERVATION AND MANAGEMENT ISSUES KENYA Dr. J.L. Kiyiapi, Department of Forestry, Moi University The Transmara District is witnessing a continuing rural development activity and is facing the classic challenge: how to sustain the development impetus while ensuring the sustainability of natural resources. Up to now, most of the Transmara forested lands are either privately owned under the group ranches system, or communally-owned. The existence of the Transmara forests is currently threatened due to socio-cultural and socio-economic changes in the life style of the local communities, who are shifting from pastoral and small-scale subsistence crop production to a cash-oriented large scale crop production of maize and sugarcane, and commercial land use. Other disturbances to which the Transmara forests are subjected include: charcoal production; extraction of pole size trees for fencing and house construction; and clearing for settlement (to assert ownership rights). More deforestation and land degradation is anticipated following the ongoing process of land demarcation, adjudication and subdivision of group ranches into individual parcels. With the new system, land owners are allowed to lease, sell, and mortgage the land and adopt modem agricultural production technology. This was not allowed when lands were under communal control. The ongoing land demarcation process has awakened the local communities to the potential economic worth of their lands. A recent economic analysis suggested that benefits accruing from crop production are higher than those from livestock, which in turn, are higher than those accruing from wildlife conservation. Studies showed that wildlife is causing damages to the local communities' livestock and property, leading to, and exacerbating a human-wildlife conflict, when these forests are traditionally known as important wildlife habitats. Land tenure options are analyzed in terms of advantages and disadvantages of private versus communal ownership. Several possible management options to save, conserve and sustainably manage these forests when the land demarcation process is completed are suggested to be as follows: (a) Individuals conserving forests on their private land or setting aside land for forest conservation; (b) County Council retaining some forested lands in trust for conservation; (c) Government taking measures to curb practices that hinder conservation. 29 African Forest Policy Forum-Proceedings PARTICIPATORY CONSERVATION OF COASTAL INDIGENOUS FORESTS KENYA Mr. Quentin Luke, Project Officer, Coastal Forest Conservation Unit, National Museums of Kenya Context The Kaya coastal forests are relic patches of the once extensive and diverse Zanzibar- Inhambane lowland forests of Eastern Africa. They have a traditional sacred value, protect many small but important watersheds of the coastal foothills, and are home to rare plant species. More than half of Kenya's rare plants occur on the coast, most of which are within the Kayas. Little is known about their ecology and potential medicinal and other values. During the last century, the Kayas were protected by the traditions and customs of the indigenous communities who inhabited the forests. The forest clearings were used for indigenous ceremonies, and the surrounding forests as a source of forest produce and burial grounds. Over the past few decades, a declining respect for traditional values and the Elders, and a rising demand for lands for agriculture and modern development, mining, fuelwood, and construction material, has led to a tremendous loss of, and damage to, these forests and associated sacred groves. The Intervention and its Objectives The Coastal Forest Conservation Project was designed by the World Wildlife Fund (WWF) and the National Museums of Kenya (NMK), and initiated in 1992, with an operational span of 8 years. A Coastal Forest Conservation Unit (CFCU) was established to operate and manage the Project which aimed to gazette all the Kaya forests and sacred groves in the coastal province, in the longer-term, as National Monuments under the Monuments and Antiquities Act, and to introduce and enhance sustainable management practices in the shorter-term. The Project objectives were to promote the development of alternative forest products; gather biological, social and other relevant information on these forest to promote ecotourism and educational uses, and provide baseline data for an effective conservation strategy; and assist the Kaya Elders in their traditional care of these invaluable forests by strengthening their conservation practices through educational programs and training of the local communities. Main Activities and Results (a) Manag!ement: CFCU staff hold regular meetings with Kaya Elders committees and local officials to chart out joint management strategies. Limited firewood collection is allowed under close supervision by forest guards, in accordance with the local rules imposed by the Elders. The forest guards are employees of the Project who have been selected by the Kaya 30 Country Papers-Summaries Elders. They patrol the Kayas and report incidents to the Project staff. A Memorandum of Understanding is being prepared to define the areas of collaboration in the Kayas conservation and general management among NMK, the Forest Department, and the Kenya Wildlife Service. CFCU plans to support the Forest Department with equipment and materials, and cover some operational costs to help expend social agroforestry. (b) Surveving: To map the forests boundaries for the planned gazettement. The National Monuments and Antiquities Act under which some of the kayas have been previously gazetted is being reviewed by the NMK lawyer. (c) Taxonomic data and species collection: Inventories of the floral composition of the forest patches are in progress to generate and update species lists. Botanical work involves specimen collection, preservation, identification, and documentation. Duplicate specimens are sent to different national herbaria. More than 3,000 plant taxas have been recorded up-to-date, 30 of which are new to science, and some 74 are new to Kenya. Documentation on 2 of these new species, Thilachium roseomaculatum and Keetia lukei, has been published in the Kew Bulletin. (d) Research: Researchers from NMK and other institutions, including some from Australia and the US, are carrying out studies on forest bird communities and vegetation diversity. Ethnobotanical, ornithological and entomological surveys have led, up to now, to putting 4 of the Kaya forest patches under the "globally important" bird areas category, and to the discovery of a new moth species for Kenya. (e) Scientific training: Botanists from NMK and other countries in Africa have been trained on herbarium techniques. Further scientific training involves university students. (f) Tree Dlantine: To encourage local communities to reforest the area, rare indigenous coastal tree species are propagated at the Project's tree nurseries, and given to the locals free of charge. (g) Environmental education and awareness program: This is done through village Elders' group meetings, workshops, seminars, and annual school essays and art competitions. School groups are encouraged to visit the Project offices and the Kayas. A short film on the Kayas has been made, and a play about a woman elder has been staged in Nairobi and Mombasa. Media coverage has been used to raise local awareness on the importance of, and threats to, the Kayas. (h) Cultural activities: the WWF Small Grants Program has helped support the Elders and their communities hold religious and traditional ceremonies in the Kayas. Project Work Modalities and Supervision Minor offenses reported by the forest guards are dealt with by the Elders who impose traditional fines, while the major offenses are handled by the NMK lawyer, who is also working on all legal aspects pertaining to the Kayas. 31 African Forest Policy Forum-Proceedings Project supervision is carried out by the Project Officer who spends half of his time at Headquarters in Nairobi, and the other half at the regional Project offices in Kilifi and Kwale. Project staff are locals. 32 Country Papers-Summaries COMMUNITY PARTICIPATION IN THE INTRODUCTION AND ESTABLISHMENT OF MULTIPURPOSE TREE SPECIES KENYA Mr. J.F. Moses Onim, Senior Associate and Project Coordinator, Winrock International, East Africa Regional Office Context In an environment of crop and livestock production intensification, dwindling suitable lands for grazing, expensive livestock feed, and general environmental degradation, there was urgent need to relieve the pressure on the land, and stop and reverse the degradation process. This could be partially achieved through increasing land fertility and productivity, checking soil erosion, providing alternative resources for food and feed, and improving the management of grazing lands. The Intervention and Its Objectives "The Introduction and Establishment of Multipurpose Tree Species Project", an applied research project, was designed to integrate multipurpose tree species in Kenya's farming systems. The Winrock International-funded Project became effective in 1983. The main goal of the Project was to develop the cultivation of forages, especially those suitable for dairy livestock farming. The Project had also the objective of meeting several other needs of smallholder farmers in Western Kenya, namely: improved soil fertility; alternative sources for fuelwood, food (e.g. fruit), and material for fences; and checking soil erosion. Main Activities and Preliminary Results (a) Participatory mechanism: Participatory Rural Appraisal (PRA) surveys were conducted with the active participation of farmers, compiling their priority needs. The farmers were asked to suggest solutions to the problems or needs they have. They were offered the opportunity to discuss their issues and related solutions with a multidisciplinary team of experts composed of specialists in crop and livestock production, socio-economics, and agricultural economics. Implementation plans for the selected solution activities were then drawn and agreed upon. (b) Applied research: The Project started in 1983 with the screening of, mainly, pigeon peas as a multi-use crop. Between 1985 and 1991, the exotic multipurpose tree species Leucaena leucocephais, Gliricidia sepium, and Calliandra calothyrus, and the indigenous species Sesbania sesban were included in the applied research program. The screening took place on farmers' land in several districts in western Kenya. 33 African Forest Policy Forum-Proceedings The performance of the multipurpose tree species was continuously monitored, and evaluated against farmers needs, by the farmers and the multidisciplinary expert team, before any species was considered for adoption and integration within the farming system. Preliminary results of the adaptive research showed that Leucaena and Sesbania yields compared very favorably against pigeon peas when cultivated intensively as a single crop, or in hedgerows (i.e. 17.0 and 13.0 versus 4.0 tons/ha, respectively). The margin narrowed down when intercropped with maize (i.e. 11.0 and 5.0 versus 4.1 tons/ha, respectively). With respect to the nutritional value of the 3 crops, the mean crude protein content in the fodder form of the crops was about the same for the 3 species (i.e. 25%, 26%, and 25%, respectively), although the in- vitro mean dry matter digestibility was best for Sesbania, followed by pigeon peas, then by Leucaena (i.e. 74.3%, 62.1 %, and 57.7%, respectively). 34 Country Papers-Summaries INTEGRATING TREE CASH CROPS IN AGRICULTURAL PRODUCTION SYSTEMS KENYA Mr. Y. Sato, Managing Director, Kenya Nut Company, and Mr. J.H. G. Waithaka, Consultant, Eureka Agritech Limited Context The macadamia nut tree was introduced to Kenya around 1944. However, its widespread planting did not start until twenty five years later, when Kenyan authorities were sensitized to the suitability, agricultural integrability, and commercial potential of the tree. Macadamia nuts and by-products have multiple uses: the fresh or salted kernels could be used for desert, snacks, confectionery ice cream and chocolate making; the oil could be used for salad, cooking, cosmetics or soap manufacturing; the cake is good as livestock feed; the hard shells could be used as fuel for home and charcoal making; and the wood produces a hard and very durable timber. The macadamia kernels are rich in unsaturated fatty acids and, thus, macadamia nuts are considered to be a health food product as unsaturated fatty acids keep blood cholesterol levels in check. Moreover, the macadamia nut tree can be interplanted with other cash crops and has a wide ecological suitability. It can readily integrate in the existing farming systems. Towards the end of the 1 960s, the Government called for the private sector to instate a macadamia nut industry. This called for the establishment of nurseries and plantations, distribution of seedlings, purchase of in-shell nuts from farmers and their processing, and marketing of the kernels in the domestic and world markets. The Intervention The Kenya Nut Company Limited (KNC) was formed in 1974 and was appointed by the Government to spearhead and invest in the development of the macadamia nut industry in Kenya. Main Activities KNC established a nursery to multiply and distribute the most suited macadamia seed selections. It also established contact with the macadamia tree growers and encouraged them to sell their produce to KNC. The company now purchases all the nuts-in-shell from growers, processes them and markets the kernels domestically and on the world market. 35 African Forest Policy Forum-Proceedings The Government established macadamia nut research and extension facilities and staffed them with the help of bilateral aid from Japan. A training program was offered to Kenyan scientists to help them increase their knowledge on all aspects of macadamia tree cultivation. Results Currently, the number of macadamia nut trees reaches about 900,000 planted by about 100,000 small farmers. The annual production averages 4,000 MT of in-shell nuts, equivalent to 800 MT of marketable kernels. At Ksh 23/kg ($0.42/kg) of in-shell nuts, the macadamia nut farmers are earning Ksh 92 million ($1,672,727) per year, which translates into an average earning of $1 6.7/farmer/year. The main macadamia nut commercial production and marketing is in the form of kernel for food consumption. Oil is extracted and marketed in limited instances. Implementation Problems The growth of the macadamia nut industry has been slower than expected. For one, financial constraints hindered KNC from producing planting material in sufficient quantities to meet the actual demand. At the same time, research and extension have not fully accomplished their planned agenda. At present, a number of pests and diseases of the macadamia nut are causing some economic losses. Actually, KNC's potential is not being fully used as the company is equipped to market much larger quantities than what the Kenyan farmers produce at the moment. 36 Country Papers-Summaries SPONTANEOUS GROWING OF TREES BY THE PRIVATE SECTOR RESPONDING TO MARKET DEMAND MADAGASCAR Mr. K Andriamahaly, National Association for the Management of Protected Areas (ANGAP) Ministry of Agriculture, Livestock, and Water and Forestry Context Demand for fuelwood for domestic and other uses around Antananarivo, Madagascar's capital, has always been high as the Antananarivo province is the most populous of the six Madagascan provinces. This demand increased sharply at the time the railroad network was being constructed around 1920 and 1940-50. The Antananarivo province's forest cover is very low and amounts to 3%. However, it contains one of the most densely forested areas in Madagascar, the Manjakandriana District, where natural forests and reforested lands coexist in patches presenting a 25.9% forest cover. The reforested areas are privately-owned plantations of, mainly, Eucalyptus trees. These plantations have come to exist starting 1920, experiencing periodic intensive replanting around the time the railroad network was being constructed. The Intervention In awareness and response to the need for fuelwood generated by the newly operating railroad company, in addition to that of the households, farmers spontaneously grew trees, mainly Eucalyptus, around Antananarivo, on their own initiative. Government did not initiate any organized tree planting activity. Two factors played a major role in this spontaneous private initiative which led to the reforestation of denuded lands, namely: (a) Resource tenure security: The Madagascan law allowed all those who developed any land, including planting it, to own the land. In addition, farmers who planted trees were assured that they would be able to sell those trees and keep the revenues for themselves; and (b) Guaranteed market outlets and economic benefits: The timber produced on the private plantations had a sure market outlet in the "Railroad Company", as the trains were using steam engines at the time, and required fuelwood for their boilers. Results The plantations' potential production capacity is about I million m3 of timber per year, 80% of which is marketed as charcoal. Although trains now do not use steam engines anymore, the private Eucalyptus plantations are still in full production as they have become the main supply source of fuelwood to Antananarivo for domestic use and coal making. The capital alone has a yearly need of 1.3 million m3 of fuelwood. 37 African Forest Policy Forum-Proceedings The majority of farmers transform the timber themselves into value-added products, such as fuelwood and charcoal, so as not to be at the mercy of middlemen. Farmers, usually, also rent trucks to transport and distribute their fuelwood and charcoal. However, in some instances, the owner of a plantation ready to be harvested sells the standing timber to a logger or a small- scale charcoal maker who has been issued a felling permit by the Forestry Service giving guidelines for felling; after which, the derived products are sold on the plantation premises; then transported and sold at the retail market in the different big cities. An informal, but very efficient, "timber network" has slowly developed over time, capable of supplying Antananarivo with 80% of its needs. This informal network covers the whole chain of events from timber harvesting, to processing (into value-added products), transportation, and marketing. It plays an important role in the economy of the population surrounding the city as the estimated market value of Antananarivo's fuelwood and charcoal consumption approximates 18 billion Madagascan Francs per year, equivalent to $4 million. Implementation Problems First, due to an inadequate technical knowledge, the quality of the value-added products and the processing efficiency (mainly in the charcoaling process), were relatively low. Second, relying on intermediaries to distribute the value-added timber products proved unavoidable because the timber producers were not able to organize themselves, and rental trucks were not readily available. Lessons Learned The plantation owners took good care of their lands, especially that they owned the lands and plantations, from which they reaped an important financial benefit. It was noted that the incidence of bush fires, a major problem in the rest of the country, dropped drastically. Follow-up Actions In the purpose of encouraging and supporting private reforestation initiatives in the rural areas of Madagascar, building on the precedent set in the 1 920s, Government issued a decree in 1985 launching the "National Operation for Action in Favor of Trees". A National Forest Fund was set up to support this National Operation. The decree states that: (a) The reforested lands will come under the ownership of the person(s) doing the replanting; and (b) Financial aid and other services will be made available to those who participate in the reforestation process. Different supportive structures have been set up since then to facilitate the private reforestation initiative, the most important of which, is the "National Silo of Forest Tree Seeds", created by a Government decree in 1992. The National Silo is a government agency with a commercial character, and its main mission is to "ensure the continuous production of quality forest tree seeds ". 38 Country Papers-Summaries PARTICIPATORY FORMULATION OF THE NATIONAL FORESTRY POLICY MADAGASCAR Mr. J.P. Randrianantoandro, Directorate of Water and Forestry (DEF) Ministry ofAgriculture, Livestock, and Water and Forestry Context In Madagascar, the forestry policy that was approved in 1985, is still in practice to this date, eleven years later. It was formulated on the basis of the then government policy of food self-sufficiency, and had its roots in a philosophy stating: "Development with no destruction, conservation and production". Since 1985, the degradation of the forest resources increased at an alarming rate due to a tremendous population pressure buildup, a seriously uneven repartition of the population, and a deteriorating national economy. In the meantime, several developments had taken place in the rural and forestry sectors which brought about changes to the economic, political, and institutional settings, namely: (a) The economy was liberalized; (b) Government gradually withdrew from operations in the forestry sector, which led to the redefinition and redistribution of responsibilities of the other groups concerned; (c) Government services were decentralized, which led to a redistribution of power among the various government hierarchies; and (d) The Environment Charter was ratified. The Intervention Government, realizing that the 1985 forestry policy had become obsolete, endeavored to harmonize the conservation ideology with the concept of sustainable development. This has evolved into the formulation of a new forestry policy revolving around 4 main axes: (a) Stemming the degradation of forest resources; (b) Managing forest resources better; (c) Increasing the acreage and production potential of forests; and (d) Improving the economic performance of the forestry sector. Main Activities Government took a participatory approach to formulate the new forestry policy so as to involve all parties concerned with forestry, whose involvement was previously marginalized. Government approach differed from the previous style of leadership and dictatorship. The new 39 African Forest Policy Forum-Proceedings policy built on the management concept that the principal stakeholders in forest resources, i.e. farmers, private loggers, and development projects, envisioned. The different stages of the policy formulation process took place at two levels: national and regional. Workshops, conferences, seminars, and work groups were organized to bring together the different players in forest resources such as public administrators, private loggers, local NGOs, development projects, public and private forest-related organizations, and farmers. It was hoped that a policy formulated with the help of a large and diversified group would have a better chance to be widely and readily accepted. Implementation Problems Although the heterogeneity of the groups involved was regarded as a very positive aspect of the participatory policy formulation process, it also made it very difficult to find a consensus acceptable to all. The negative aspects of the groups' heterogeneity were as follows: (a) A widely varying level of information of the various groups on the forestry situation and its issues; (b) The ecological diversity of the country and region of origin of the participants. Next Steps The success of the new forestry policy will depend mainly on the support of the different players, and their substantive involvement in the formulation and implementation of a sustainable forest resources management plan. 40 Country Papers-Summaries ENVIRONMENTAL REHABILITATION OF REFUGEE IMPACTED AREAS MALAWI Mr. Robert Kafakoma, Project Coordinator, ELDP/L WS (Evangelical Lutheran Development Programme/Lutheran World Service) Context The rate of deforestation and overexploitation of natural resources around refugee settlements in Malawi has caused a myriad of environmental and social problems. Much of the agricultural land has lost its productive capacity due to erosion. Water tables have dropped due to loss in ground cover and poor rainfall in the last few years. Women have to walk long distances to collect firewood, and thus, spend less time on family care. Household food security and incomes, overall socio-economic situation, have been badly impacted. However, deforestation and overexploitation of natural resources are not solely due to makeshift refugee settlements. In fact, the refugee influx has merely exacerbated the country's existing land degradation and deforestation. When the refugees were still on Malawian soil, Non Governmental Organizations (NGOs), such as the Evangelical Lutheran Development Programme of the Lutheran World Service (ELDP/LWS), collaborated with Government and UNHCR to execute small projects to reduce the rate of environmental degradation in and around refugee settlements. For instance, ELDP/LWS built and distributed fuel wood saving stoves to the refugees, and planted trees in and around the settlements. After the refugees were repatriated, the challenge of reconstruction and rehabilitation of the refugee-impacted areas was left to the Malawians. As trees were, and still are, an important source of livelihood to the Malawians, a well-planned strategy had to be put in place to address the situation. The Intervention and its Objectives In response to the national need, ELDP/LWS implemented an Environmental Rehabilitation Project which was designed to: (a) Restore the ecological balance through conservation and reforestation; (b) Reduce chronic underdevelopment and improve the standards of living of the local communities; and (c) Raise community awareness regarding the inter-dependence of the community and the environment. This project was three-pronged in that it involved action in three different areas: (a) Forestry: promote the use of less expensive and more efficient wood stoves; assist farmers in establishing individual tree nurseries and woodlots; organize environmental awareness and 41 African Forest Policy Forum-Proceedings educational meetings; strengthen the capacity of villagers for the sustainable management of natural resources; (b) Agriculture: promote agroforestry to increase crop productivity; train farmers in soil and water conservation practices; promote crop diversification; (c) Water: improve the quality and quantity of domestic water supply; provide environmental sanitation training to minimize the incidence of water-borne diseases. Results Up-to-date, 1.2 million trees have been planted around homes and in individual woodlots. The number of trees to be planted during Year 2 of the Project is expected to reach 3.1 million, a 158% increase over the previous year. Farmers' training and the special efforts that were made to raise their awareness with respect to the need for the rehabilitation and conservation of the environment, yielded positive and immediate results. This was apparent in that the number of participants, participating villages, and tree nurseries are projected to increase by 38%, 42%, and 70%, respectively, by the end of Year 2 of the Project versus Year I. Farmers have taken this project to heart: they plant on time, make basins to catch more water around the new plants, and weed early to achieve maximum tree survival. Due to the use of more efficient wood stoves, women do not have, anymore, to spend a tremendous amount of time to fetch fuel wood, hence spend more time, now, caring for their families. Farmers who are adopting the agroforestry and crop diversification practices promoted in the Project are increasing by 35% in Year 2, the number of women trained on how to make and use the clay fuel-efficient stoves are projected to quadruple, and the number of the stoves produced are tripling. Implementation Problems (a) It is proving difficult to change the people's attitudes towards tree planting and protecting the remaining indigenous species. This is seen as the residual effect of having tree ownership, especially indigenous species, vested in the Forestry Department; and (b) Certified, high quality seed is in very limited availability in the country. The market price of such seed is prohibitive to poor farmers. Lessons Learned (a) Sustainable natural resource management could only be achieved through environmental education and effective communication, and an integrated approach encompassing agriculture, forestry, and water; (b) Involving local communities in the management of trees and forests (as they would acquire a sense of initiative ownership) is seen as a hope of reversing the effects of deforestation and impoverishment of the rural populations; and (c) Community empowerment through leadership and community organization helps ensuring the success of any community-based activity. 42 Country Papers-Summaries STAKEHOLDER PARTICIPATION IN AND RESTRUCTURING OF FORESTRY RESEARCH MANAGEMENT MALAWI Mr. L.A. Sitaubi, Chief Forestry Research Officer, Forestry Research Institute, and Mr. M Stewart, ODA Project Teamleader, Forestry Research Institute Context Malawi is a land-locked country and has no substantial mineral resources or industrial development potential. Malawaians depend heavily on forest products for their livelihood as woodfuel provides about 90% of their energy supply; poles, rope fiber and thatch provide essential raw materials for utensil making, and house and granary construction; and wild fruits, fungi, bush meat and insects constitute a major source of food. Also, forests are an important source of medicinal products for rural people. With time, deforestation progressed rapidly resulting in a tremendous loss in essential forest products and biodiversity, and severe environmental degradation. In this context, coupled with a population pressure build-up, demand for forest products, e.g. fuelwood, exceeded by far the estimated sustainable supply. The need to optimize and diversify land productivity became very pressing. In the meantime, the State Forest Service, operating in a static and conservative policy environment, and the Forestry Research Institute of Malawi (FRIM), were focusing almost exclusively on the establishment and management of industrial timber plantations, neglecting to give attention to the causes that led to the sorry state in which the forest resources were, and remedy the situation. Outstanding sensitive issues such as the unequitable access to, and the status of ownership of, trees by local communities and individuals were not tackled. The Intervention In recognition of the worsening situation of the forest resources, a new forest policy was approved in 1996. It promoted a more equitable access to State forest resources as one means for poverty alleviation. The proposed implementation strategies included increased productivity in agroforestry and plantation forestry through improved tree husbandry. The implementation of the new forest policy meant that, as an example, state Forest Reserves and National Parks, which occupied a combined 20% land area, could not be left idle anymore. The ways and means of bringing these areas into sustainable production constituted a major challenge. Also, the productivity of the existing.timber plantations had to improve to generate more employment and export earnings. Research was identified as an important element in making the new forest policy implementable as it would find the optimal way to achieve the stated goals. 43 African Forest Policy Forum-Proceedings However, forestry research had been somewhat compartmentalized along disciplinary lines in the past, with a questionable relevance to the needs of the end users. In today's environment, stakeholder involvement in research planning and implementation has become essential to ensure the relevance and validity of research programs. In this context, FRIM's institutional approach to research planning, management and evaluation had to be restructured. Objectives Keeping the goals and objectives of the new forest policy in focus, FRIM redefined its mission so as to "provide information and germplasm, and to carry out research on the sustained management, utilization and conservation of trees andforests, emphasizing people 's participation and benefits for poor people". The objectives of increasing stakeholder participation in, and reorganizing, forestry research were to increase the relevance of the research programs and the use of subsequent results and recommendations; apply an integrated approach to research; simplify monitoring and evaluation; and use staff skills efficiently. Main Activities and Results Several mechanisms were identified through which a wide range of stakeholders could be involved in research planning, management and evaluation. Interest groups were invited to participate in the yearly National Forestry Research Council meetings (NFRC), from which sub committees, the Strategy Area Coordinating Committees (SACC) emerged. SACCs were intended to monitor and recommend research prograrns. Appropriate stakeholder representatives were identified to participate in the NFRC and SACC meetings and their roles were defined. The representatives jointly developed mutually agreeable terns of reference for the SACCs. A pilot participatory program for woodland management involving forestry research and extension agencies and staff, and villagers is now in the early stages of implementation. Plans for agroforestry systems research are currently being developed. FRIM was reorganized into four problem-oriented research strategy areas and teams: "Indigenous Woodland Management", "Trees on Farm", "Industrial Plantations", and "Seed". Two additional non-research strategy areas, "Technical and Information Services" and "Management Services", are also being developed. Implementation Problems and Lessons Learned Some problems were encountered such as the difficulty to choose the proper representatives, lack of funding, poor meeting attendance, inadequate prioritization of research, difficulty in harmonizing choice of criteria for all areas of a diverse research program, and the quantity, quality, and retention of qualified staff. Some lessons learned included the need for management and other training for all involved in the decision-making and implementation of the new approach to forestry research. 44 Country Papers-Summaries CAPACITY BUILDING IN LOCAL COMMUNITIES FOR SUSTAINABLE RESOURCE MANAGEMENT MALI Mr. Mamadou Haidara, Chief, Technical Department Natural Resources Management Project Context Mali's Natural Resources Management (NRM) Project started its operations in 1993. Its main goal was to introduce a rational land use system in selected areas so as to stop and reverse the process of natural resources degradation. It would improve the standard of living for an approximate 406,000 rural inhabitants, and help conserve biodiversity in Mali's Baoule National Park. Operating with a participatory approach, one major Project objective was to restore the power of decision-making over all what pertains to their future, to the local communities themselves. The Project established implementation and management entities at the national, regional, sub-regional, and village levels. The Project preparation process had included the organization of villagers into Village Committees for Natural Resources Management (VCNRM) which becarne the Project's spokespeople at the village level. Technical Support Teams (TST), each comprising 3 specialists, in communication and organization, in natural resources management, and in finance and administration, were formed to assist in the design of village natural resources sub-projects/investments. The Intervention, Main Focus and Methodology Capacity Building, one of the Project's main components, had the long term objective to help the local communities use their natural resources sustainably and efficiently. The success of this component relied on the acceptance and active adoption of the capacity building process by all groups implicated in the Project: Local communities, technical staff, administrative and political authorities at all levels, and the general public opinion. The main focus in the local communities segment of the Capacity Building Activity was to develop their capacity to establish or strengthen social and other community groups, and their negotiation skills with the technical and administrative authorities; for the technical staff: to develop their technical and communication skills, understanding of the NRM Project principles, and ability to identify valid indigenous practices; and for the administrative and political authorities, and the public opinion: sensitize them to the problems caused by degradation, and improve their understanding of the Project to ensure their total support and endorsement. 45 African Forest Policy Forum-Proceedings Main Activities and Preliminary Results Through awareness-raising and training campaigns, the local communities are encouraged to form village groups representative of all the socio-professional layers involved in the utilization of natural resources. Detailed studies of the social and physical conditions of the milieu are then participatorily conducted to identify and evaluate their constraints and potentials. Negotiations between the community and the Project authorities result in zoning of the village lands into several land use categories which are described in a "Land Use Map". A long-term "Management Plan" is then put together identifying and detailing all infrastructural and social investments necessary for the sustainable management of the area encompassed in the "Land Use Map". Investments are then prioritized on the basis of their urgency and feasibility, resulting in an "Investment Plan" to be financed and implemented by the NRM Project taking into consideration the limitations of the Project authorities and the beneficiary communities in contributing towards the implementation of the Plan. On the basis of the "Investment Plan", "Cost-sharing Contracts" defining the commitments and responsibilities of the two groups are signed by the Project Director and the VCNRM President. Both groups monitor and evaluate the progress of the projects. When contractors are hired to execute the projects, they are selected competitively by the VCNRM, fulfilling one of the main Project objectives, namely restoring the decision making for the management of their own business back to the rural populations. Several village forest activities were executed. For example, firebreaks were completed in 1995 in the traditional lands of one village after an agreement was reached concerning their utilization and protection from misuse by the populations of the concerned village and of the surrounding areas. Unfortunately, in some villages, land ownership disputes hindered reaching an agreement on a unified natural resources management and investment plan. 46 Country Papers-Summaries PARTICIPATORY NATURAL RESOURCES MANAGEMENT MALI Mr. Adikarim Toure, Forest Resources Directorate Ministry of Rural Development and the Environment Context Many factors have contributed to a severe degradation of natural resources in Mali: High demographic pressure, climatic adversity, overexploitation of natural resources, failure to take the local communities' social characteristics into consideration and really involve them in development activities, thus causing many rural development projects to fail in achieving their goals. More recently, Government has endeavored to identify and implement new strategies and innovative projects for a more sustainable natural resources development. The Intervention and the Strategies Adopted The Natural Resources Management Project was approved by Government and became operational in 1993. Its main goal was to introduce a rational land use system in selected areas so as to stop and reverse the process of natural resources degradation. The general context in which interventions were designed was that of an intensification of the production systems in a sustainable manner, ensuring the renewability and long-term existence of natural resources. The Project was part of The National Program to Control Desertification. The Project took an integrated approach to the development of natural resources, and its strategies revolved around: (a) Sensitizing the population to the benefits of the Project's approach, and transferring responsibilities to the local communities; (b) Decentralizing decision-making; (c) Analyzing the situation and diagnosing the prevalent problems; and (d) Jointly and participatorily planning resource management activities. Project Components and Main Activities (a) Village-level investments to stop the resource base degradation process; (b) Construction of infrastructure and productive facilities to improve the local people's quality of life in about ISO villages; (c) Modification of the Baoule National Park boundaries, and implementation of long term management plans; (d) Assisting village-led initiatives to design, implement, and monitor community natural resource management plans with the help of the Extension Service and NGOs; (e) Conducting applied research and technical studies; (f) Establishment of an Environmental Information System; and (g) Various capacity building activities, including training and awareness raising campaigns, targeting the concerned public Administrations and the local communities. 47 African Forest Policy Forum-Proceedings The Project preparation process included the organization of villagers into Village Committees for Natural Resources Management (VCNRM) which became the Project's spokespeople at the village level. A Central Unit for executing and monitoring the Project was created in the General Secretariat of the Ministry of Rural Development and the Environment. Preliminary Results (a) The Project is contributing to community empowerment through the establishment of "territorial" boundaries with neighbors, and allowing the communities to allocate land use according to community goals. (b) A smooth leadership shift was noted from patriarchs to young, educated villagers in recognition of the importance of technical knowledge, motivation and enthusiasm. (c) The Project was a catalyst in conflict resolution within and between the local communities. (d) The communities' skills in natural resource management, and procurement and financial management improved tremendously. 48 Country Papers-Summaries RESTORATION OF HIGHLY DEGRADED AND THREATENED NATIVE FORESTS MAURITIUS Mr. YousoofMungroo, Director, National Parks and Conservation Service Context Mauritius is a volcanic island of 1,865 sq. km located in the Indian Ocean at 20°S latitude, 900 km east of Madagascar. It is known to possess one the most diverse floras in the world. The flora is composed of over 700 species of indigenous plants of which about 250 are endemic. A high proportion (about 50%) of the endemics is threatened or endangered. This diversity is being highly threatened through invasion by exotic species. Two of the most aggressive exotic plants are privet (Ligustrum robutum var. walkerii) and chinese guava (Psidium cattleianum). Both plants can form thickets so dense that they hinder the regeneration of native plants. Animals that were introduced to the native forests, such as monkeys (Macaca fascicularis), deer (Cervus timorensis), and pigs (Sus scrofa), contribute to the non-regeneration of the native vegetation because of their gregarious and foraging nature. Native forests still persist as broken canopy of increasingly old and non-regenerating trees. If nothing is done to halt the spread of the invasive exotic plants in the native forests, the remaining flora and fauna will be wiped out since they are unable to compete with the alien species. This would result in a tremendous loss of biodiversity. Thus, the preservation of the native forests is vital in maintaining the natural heritage of the area, which could be a valued touristic and educational attraction. Restoration and Preservation of the Native Forests (i) Creation of Nature Reserves One of the first steps taken towards the preservation of the natural vegetation was to declare these areas as Nature Reserves. The first Nature Reserves were declared in 1951 and by 1974 there was a total of 20. The concept that Nature Reserves will take care of themselves if left undisturbed was proven fallacious. The equilibrium of the ecosystem could be restored only by active management interventions. (ii) Ex-situ Conservation Endangered plant species are currently being propagated in the Government nursery from seeds and/or cuttings. Prior to that, a list of some 50 top priority plant species which need to be propagated and saved from extinction was put together. The stock of rare plants thus produced in the nurseries are being gradually reintroduced in the wild in their natural ecosystems. 49 African Forest Policy Forum-Proceedings (iii) In-situ Conservation The ideal solution to the problems of conservation of the native forest ecosystem would be to completely eradicate all pests from the forests, but this is a mammoth and ambitious task. However some areas, where the invasion by exotic plants is not that pronounced, have been selected and managed extensively. Eight Conservation Management Areas (CMAs), as they are called, ranging from one to eighteen hectares in size are chosen as representatives of the different forest types of Mauritius, to conserve the existing native flora. About 90 percent of the endemic plant species have been protected in these plots which have been fenced to exclude the deer and pigs and where all the exotics were manually removed. (iv) UNDP/GEF Restoration Project The results achieved after weeding the CMAs were very encouraging as many native plants are now regenerating successfully in the selected plots. However manual weeding is a very expensive and labor intensive process to replicate on a large scale. A UNDP/GEF Restoration Project was designed to come up with a less costly and labor dependent method to halt the invasion and degradation of the native forests caused by exotic weeds and animals, and to restore, to the extent possible, the original structure and function of the native forest ecosystem. The Project aims at the restoration of a 6-hectares plot of highly degraded native forest contiguous to the 1 8-hectares Brise Fer plot in the Black River Gorges National Park. Through consultation with pest control experts and restoration ecologists, an effective means of controlling the exotic weeds (chinese guava and privet) would be developed. This Project, if successful, could be replicated elsewhere to tackle similar invasive problems by exotics. Implementation Arrangements The Project is funded under the Global Environment Facility (GEF) scheme through UNDP. The Project is being implemented by the Mauritian WiIdlife Appeal Fund (MWAF), a local non-governmental organization, with the participation of the University of Mauritius National Youth Award Group, and the Mauritius Herbarium (MSIRI). The Project's implementation is supervised by the National Parks and Conservation Service. A Technical Advisory Committee (TAC) has been constituted to systematically monitor, evaluate and provide guidance to the Project. A National Project Director has been designated by Government to manage the Project. An agreement has been signed between the Ministry of Agriculture and Natural Resources and MWAF, designating the latter as the Project implementor. The NGO is in charge of selecting Project personnel after clearance from TAC. Procurement of needed equipment is done by the NGO in accordance with UNDP procedures. The University of Mauritius will hold a workshop in November 1996, which will essentially be a one-week Biodiversity Course offered by the University. 50 Country Papers-Summaries HOUSEHOLD ENERGY STRATEGY: ONE ELEMENT OF THE OVERALL FORESTRY STRATEGY NIGER Mr. Soumalia Dan Baria, Director, and Mr. Pierre Montagne, Technical Advisor World. Bank Household Energy II Project--Supply Side Context Demand for fuelwood in urban areas in Niger has increased steadily over the recent years. In the past, only dead wood was available on the market, but the present trend is to supply the market with more and more green wood. The fact that the need for fuelwood is not satisfied as dead wood is attributed to a slow tree growth rate due to unfavorable climatic conditions, an ever expanding agriculture, and an extensive land pasture system. Demand exceeding supply has resulted in deforested lands around the urban agglomerations. The fuelwood trade has always been controlled by urban traders-transporters who make considerable profits from the non-sustainable harvesting of wooded areas. The Intervention The Household Energy Project was designed to address the prevailing mismanagement and degradation of forest resources. The Project became operational in 1989. Its overarching goal was to reinstate the ownership of natural resources, notably wood resources, to the rural populations, which would result, it was hoped, in a sustainable long-term management, regular supply of fuelwood to the urban areas, and enhanced rural development. To reinstate ownership of natural resources, the Project aimed at involving the local population in the fuelwood commodity chain by legitimizing their management responsibilities through the creation of rural fuelwood markets. These markets would benefit the communities. The reasoning followed was that when the communities and individuals benefit from the set up of such markets, they would likely commit themselves to a sustainable management, and protect that source of wealth. An enabling legal environment was established and became functional in 1994. One feature of the related new fiscal system concerns local wood producers in that it allows them to collect their dues as soon as they sell the wood. Part of the fees they collect goes to the central and local governments. These funds allow the authorities to perform their supervisory role and to fund rural development projects at the village level. Results A network of several functional rural markets has been put in place. These markets operate on a satisfactory commercial basis and base their operating decisions on predefined 51 African Forest Policy Forum-Proceedings criteria (quotas, cutting methods, etc.). The appropriate taxes are being collected and the fraction due the government handed over. The rural markets have actually resulted in a value increase of "standing wood". The wood producers are getting between 3 and 5 times what they were getting before the Project for their wood. Consumer prices rose by only about 18%. Due to the new rural markets system, a substantial income is generated to the woodcutters and managers, and village funds, which in turn, feeds into the treasury of the local and central government. Government has already transferred forest management responsibilities to the communities in operational rural markets. Now, the objective is to develop the forests to keep these markets well fed. It has been found that at an installation cost of about $1 0/ha, rural markets are likely to be the lowest-cost answer to rational management of forestry resources. Replicability of the Niger Experience It has been argued that the Niger experience is worthwhile but too narrow in its replicability, not applicable outside the Sahelian zone or for resources other than fuelwood. The strategists and implementors of the Niger experience argue the opposite based on that: (a) The structure of the fuelwood commodity chain demonstrates that until the recent reforms and up to the creation of rural fuelwood markets, rural populations had lost effective control over the wood resources on their land and were therefore unable to negotiate harvesting rights under any sort of favorable conditions. A situation that is not specific to Niger. (b) One of the outstanding comparative advantages of local management is the fact that all stakeholders have to come to an agreement on how to manage one common resource. For a viable and sustainable management, the diversity and limitations of all groups and resources involved are taken into consideration. This in itself shows that the kind of resource or group is not the issue but rather the approach taken to manage the resource and the definition and allocation of responsibilities. (c) The possibility to make financial profits from renewable natural resources (any resource) has been proven here and elsewhere to provide an incentive for their effective and sustainable economic use, and for local development through exclusive local management by rural populations. 52 Country Papers-Summaries PARTICIPATORY FOREST LAND USE PLANNING - CROSS RIVER STATE - NIGERIA Mr. Etim B. 0. Amika, Director of Forestry, Cross River State Forestry Department Context The largest areas of Tropical High Forests (TBIF) left in Nigeria, located in the Cross River State, have been disappearing fast. Several contributing factors could be cited, including an ineffective Forest Law which encouraged illegal forest exploitation; a Government policy to give logging concessions without consideration for alternative land uses, conservation or environmental protection; the existing land tenure system and inheritance pattern which indirectly encouraged deforestation; illegal logging; and the legislative environment which allowed farmers unchecked to clear forest lands and convert them into farmlands. This contrary interplay of human, economic, social and cultural factors acted as an incentive to seek a sound, workable, and acceptable land use plan for the Cross River State (CRS), especially that the forest estate contained several different forested land categories (THF, National Park, swamp forests, mangroves, plantations, and other forests). However, at the time, the Forestry Development Department (FDD), the administrator and custodian of the CRS forest estate, was in a deplorable condition caused by under-funding, lack of technical and socio- economic data, lack of machinery and equipment, and deficient staff training. The FDD' s Administration, realizing that it was incapable of managing the forest estate by itself, sought to actively involve local communities, farmers, other stakeholders, and some donor agencies in land use planning and forest management. Government, thus, resolved to take a participatory and integrated approach to forest resources management. The Intervention and Main Activities The Cross River State Forestry Project started in 1991. Its goal was to identify the underlying issues that led to the severe resource degradation, and recommend a suitable approach to mitigate and resolve these issues. The Project aimed at achieving a participatory and integrated land use planning and forest management in CRS for the sustainable development, conservation and management of the forest estate in the best interest of all stakeholders (including local communities, farmers, loggers, and government institutions and officials). Community empowerment and participatory tools were principal strategies adopted by the Project. Consultations and dialogue among all parties were key activities. For example, the Forestry Department convened a Policy and Institutions Workshop to discuss their weaknesses and deficiencies. The consultations helped identify and establish special-focus committees such as a Task Force (TF), Steering Council, Steering Committee, Inter-Agency Committee, 53 African Forest Policy Forum-Proceedings Community Forest Management Committees (CFMCs), and the Cross River State Produce Tariff Review Committee. Policy and institutional reforms of the CRS Forestry Sector were recommended but found above the mandate of the local Government. It was agreed that a Strategy for a Sustainable Development, Conservation and Management of the CRS forest be formulated instead. In that purpose, the existing policy guidelines and legislation governing the conservation of natural resources and forests were identified, and data on the state of the forest, socio-economic land use, and all interest groups were collected All was then presented and evaluated at a Strategic Planning Workshop. The CFMCs sensitized and trained the local communities on how to use forest and land to their individual and collective advantage, assist in the protection of forests by checking illegal loggers and Non-Timber Forest Produce (NTFP) gatherers, formulate local by-laws to control illegal farrning, and set NTFP harvesting seasons. CFMCs were allowed to sell forest products and use the revenues to run their business and invest in community development activities. A key feature of the process was a built-in feed back system that channeled the views of the villagers to the various Committees through the representatives of the local communities. Another important feature was the position papers representing the views of the communities, forest concessionaires, timber producers and dealers, and other NGOs. These position papers were written at the end of each stakeholder group consultation and contributed to the preparation of the Strategy document. Modem agricultural inputs were provided to farmers to help intensify the agricultural production. Farm tools, fertilizers, etc. were subsidized as an incentive to encourage farners to farm lands outside the forest. Results and Implementation Problems The Project's approach succeeded in building trust and confidence arnong the stakeholders themselves on the one hand, and between them and the Forestry Department on the other. The stick and carrot approach was proven very successful when some obstructive social habits were difficult to change. Thus, rules were enforced at certain times, while incentives were provided at other times to ensure the effective implementation of the Project. This new integrated and participatory approach provided an opportunity to FDD to understand the other stakeholders better, and appreciate their immediate needs, strengths and weaknesses, which, in turn, enabled FDD to tailor a training program for capacity building. Also, the local communities and other stakeholders gained a better understanding of the value and interaction of the forest and the land, and their relationship with the communities, which is at the root of any desirable changes. Some of the implementation problems encountered were as follows: (a) The zeal and enthusiasm of the communities and other stakeholders in participating in the new process increased substantially with time. Unfortunately, donor support ceased at a time when the process was not yet strong enough to stand on its own, causing a major setback to this initiative; 54 Country Papers-Summaries (b) The local communities did not fully see the need and benefits of sustainably managing their communal lands; (c) Some community representatives misinformed their communities on Government proposals and strategies, for personal gain and to score political points; and (d) Performing the major Project activities and the actual problem-solving involved were outside the direct jurisdiction of the Forestry Department. This included the revision of the land tenure system which has legal implications. This task was given to the State Ministry of Justice through the Inter Agency Committee to take action but no response was given hindering the progress of the Project. Also, the modem agricultural inputs and incentives were not provided at the proper time and extent needed, thus did not make a difference. Lessons Learned It was proven that the communities and other stakeholders know what their needs are, but are handicapped in meeting those needs by a lack of skills and financing. Targeted training and capacity building can do wonders in enabling them to work in partnership with Government. Most government programs of this nature fail not because badly conceived, planned or executed, but because a very important element for success is usually left out or treated as unimportant. This critical element is the collective responsibility and decision-making of the would-be beneficiaries. This element was fully taken into consideration in the CRS Forestry Project and could be called the king pin of the "little" achievement recorded so far. Withdrawing donor support from a new and novel initiative when it is not yet strong enough to be self-sustaining, almost cancels all benefits recorded and impedes progress. 55 African Forest Policy Forum-Proceedings PARTICIPATORY FOREST POLICY REFORM SENEGAL Mr. Matar Cisse, Head of the Forest Management and Production Division Ministry of the Environment and Nature Protection Context In Senegal, as in many other sub-Saharan African countries, forests not only protect soils against erosion and maintain their fertility, but also provide the bulk of the country's needs in energy, and valuable pastoral lands for livestock farming. Government opted for a participatory and sustainable style of natural forests management to strike a balance between demand on energy and realistic projections of woodfuel supply. In the early 1 980s, the management of natural resources, including forests, was obligatorily participatory and was accompanied by various incentives to make the participation of local communities attractive to them. However, as participation was limited to project execution, and the focus of the Forestry Service was actually on reducing woodfuel supply to force substitution with gas, the hoped for results were not attained. National dialogue and consultations at all levels, and a series of national conferences and symposia were conducted to reevaluate and reshape rural communities' integration and the way to effectively transfer management responsibility to them. Senegal, then, resolved to take a participatory approach to the formulation and implementation of natural resources development. The National Forestry Action Plan hinged on ensuring effective protection of forest ecosystems; restoring degraded forests; and rationally managing forest resources for a sustainable production of woodfuel and other forest products. The Intervention In the early 1 990s, a Regional Program on the Traditional Energy Sector, RPTES, was designed to identify and implement operations to improve the efficiency of the traditional energy sector. Within RPTES, a review of the traditional energy sector was conducted in Senegal by a multi-sectoral team with representatives from the Ministry of Energy, Mining and Industry, and the Ministry of Environment and Nature Protection to diagnose the prevailing problems and recommend solutions. Results The review concluded that in light of the Senegalese macro- and socio-economic environment, the forest resources will remain the main source of energy supply in the foreseeable future. The challenge then, will be to devise and implement a sustainable management plan and transfer responsibility to the local communities, to allow a continuous and steady supply of woodfuel while conserving the environment. 56 Country Papers-Summaries To that effect, a new forestry legislation and set of regulations were issued in 1995, to help realize a full participation of the local communities in the sustainable management and exploitation of forests. A change in the role of the different stakeholders in the forest sector, e.g. local communities, Forest Service, and the present market players must be effected to attain the desired goal of effective participatory sustainable management. Government was able to redefine its priorities concerning domestic energy production and use. A new strategy for the energy sector was adopted in 1993 which objectives were to rationally manage the forest resources; limit demand for fuelwood; and build the capacity of the public Forest and Energy Services. Also, important progress was made in reconciling and coordinating the forestry and energy policies, and in improving the monitoring and evaluation of both sectors. Next Steps Government is presently considering using external funds to implement a participatory sustainable management program covering traditional and alternative energies. Local communities are considered the main actors and beneficiaries of the program which main objective is to improve their standard of living. The program will have two main components: (a) A "Supply Side", called "The Sustainable Management of Natural Forests for the Production of Fuelwood", which involves a forest inventory, joint area studies and dialogue with the communities to define management plans, capacity building of the local communities, bushfire control, and devising a progress monitoring and evaluation system; and (b) A "Demand Side", called "Demand Management and Promotion of Alternative Sources of Energy", which objective is to meet the population's requirements in energy in an efficient and regular fashion, at the least cost possible, while presenting alternative energy sources and method of supply. The Program includes an institutional development component; the modernization of the charcoal industry; and a pilot operation to promote the use of kerosene stoves. 57 African Forest Policy Forum-Proceedings COMMUNITY-BASED YOUTH PARTICIPATION IN THE REHABILITATION OF FRAGILE AREAS SIERRA LEONE Mr. P.D. Palmer, Chief Conservator of Forests, Ministry ofAgriculture and Natural Resources Context In 1991, as a result of civil strife, many people migrated from the provinces to an already over-populated Freetown, Sierra Leone's capital. Population pressure on the coastal lowlands of Freetown caused the clearing of big expanses of lands on the steep slopes surrounding the city for urban settlement, construction, farrning, collection of fire wood, quarrying, and other land uses. This caused damage to life and property and led to the rapid degradation of the environment. The Intervention and its Objectives To remedy to this sorry situation, Government introduced the Green Belt Program, a four-year activity. It called for the replanting of some 710 ha of degraded lands on the Western Area Mountains. Replanting was to be done by youth groups. The objectives of the Prograrn were to: (a) Provide employment for the idle youths in an environment of high displacement and slow economic activity; (b) Replant the steep lands to check erosion, prevent landslides and rolling borders, and protect life and property from any ensuing damage; and (c) Instill in the youth the spirit of community work and development. Main Activities of the Program (a) General sensitization and educational campaigns on environmental conservation; (b) Tree seedling production in Youth nurseries; (c) Replanting of the designated degraded mountain slopes; (d) Tending and maintenance of plantations; and (e) Providing the youths with forestry skills through training in forestry activities. Results The start of the Program was delayed due to a late remittance of funds into the Program's accounts. Nonetheless, results have been satisfactory up to now. Thirteen Youth nurseries have been established and produced seedlings of different tree species such as Acacia mangium, Acacia auriculiformis, Pithecellobium dulce, etc. 154 ha of the targeted 166 (93%) ha 58 Country Papers-Summaries have been planted in the first year of the Program by the 28 youth groups involved. All planted areas were later tended to. Problems Encountered It proved somewhat difficult to work with the youths as they were not easy to control and direct, and had ambitions geared toward personal benefits. Delays in the remittance of external funds in the Program's accounts and in the provision of agricultural inputs and youths' wages were serious problems at the start of the Program. Lessons Learned Diplomacy, effective supervision, transparency, involvement of the youths at all stages of the Program from planning to implementation, clearly defined benefits, and a good communication network are mandatory for the success of such a Program. 59 African Forest Policy Forum-Proceedings PUBLIC SECTOR MANAGEMENT OF INDIGENOUS FORESTS FOR SUSTAINABLE TIMBER HARVESTING SOUTH AFRICA Dr. A.. Seydack, Senior Specialist, Department of Water Affairs and Forestry Context 35,675 ha of Afrotemperate evergreen forests in the Knysna region of the Cape Province in the Republic of South Africa were under the management of the Forestry Section of the Department of Water Affairs and Forestry through their local office. The forests were under a sustained yield management program, and labeled for multiple use for nature conservation, forest production (timber, ferns), and outdoor recreation. During recent years, the sustainable management of these forests was faced with 3 main challenges: Harrnonizing multiple land-use priorities (especially the demands of conservation versus utilization); setting of effective regulatory systems for a sustained use; and economic viability. Of concern, also, was the Australian blackwood, Acacia melanoxylon, regarded as a stubborn exotic invader of the forests. Controlling it was the largest single conservation management cost. The Intervention and its Objectives The implementation of policy directives to face up to those challenges became an evolving process, involving periodic assessments, innovative developments, and reforms. Main Activities (a) Forest management classification: The existing management classification was modified into a 5-class management system: Timber exploitation on 26% of the forests; protection on 44.8%; Nature Reserves on 27.6%; recreation on 0.4%; and research on the remaining 1.2%. (b) Regulations for a sustainable timber harvesting: The forests are characterized by single tree deaths, and extended pre-death periods of visible senility. In rythm with the forests dynamics, the selected yield regulation approach involved single tree selection harvesting, a felling cycle of 10 years, and a mortality pre-emption based on tree condition. This approach resulted in the "Senility Criteria Yield Regulation System". Its basic principles are as follows: The visible signs of senility or reduced life expectancy such as the percent crown dieback, structural damage, signs of decay, agony shoots, and leaning position, were identified for each relevant tree species. These criteria are then calibrated to the rate of mortality as an index of current population turnover. For example, a stand with a 60 Country Papers-Summaries mortality rate of 1% per year, 20 trees from 200 would be harvested every 1O years for sustainability. (c) Economic viabilitv: A number of measures were implemented with the purpose of increasing the income base, contributing towards the regional economy, or reducing management costs. These measures were as follows: 1. As some of the more common tree species selling price on the auction market did not cover harvesting and handling costs, it is being researched now whether the situation would reverse itself if the same timber could be sold at more favorable prices in a value-added form (sawn or dried). 2. The harvesting of the Rumohra fern has been allowed in localized areas on concession basis. The impact of harvesting on the species' phenology is being closely monitored. 3. Traditionally, a low intensity/low input outdoor recreation was allowed. Currently, more intensive commercial forms of recreation, tourism and ecotourism, are being promoted in the hope of future substantial income gains. 4. An in-depth study of the invading Australian blackwood was conducted, and the results indicated that its spread in the forests interior is naturally curbed. This allowed for a more targeted and less costly control program. Results and Benefits In general, these activities have resulted in an increased effectiveness in the management of indigenous forests, especially with regard to the harvesting regulations for sustainable timber yields. Improved management has contributed to increase the regional economic benefits as it has allowed for more employment opportunities, infrastructure for tourism, and diverse opportunities for private commercial timber and fern industries. Lessons Learned Efficient indigenous forest management requires that the relevant information be obtained and transformed into policy directives, management systems, and prescriptions, which in turn must be effectively implemented. Other key elements found to be prerequisites for institutional effectiveness and success in such an endeavor are: (a) Corporate specialized focus. The managing agencies should be specialized in, if not solely confined to, indigenous forest management; (b) Competence of staff. This is a function of adequate recruitment, training, and experience; (c) Strategic leadership. Managing agencies require persons with strategic leadership and visionary qualities to man key positions, in order to focus the agency's activities on the achievement of long-term objectives. 61 African Forest Policy Forum-Proceedings INTEGRATED INDUSTRIAL FORESTRY: THE CASE OF THE USUTU PULP COMPANY Ltd. SWAZILAND Mr. Peter RPA. Whitfield, Forest Manager, the Usutu Pulp Company Ltd. History The Usutu Forestry Project was initiated in 1948 by the Colonial Development Corporation, CDC, following on the findings and recommendations of a survey of a 60,000 ha area in the Highveld of western Swaziland around the Great Usutu River. Pine tree plantations consisting of P. patula, P. elliottii, and to a lesser extent, P. taeda, were established in that area in 1950. The growing conditions were excellent, allowing for productivities around 20m3 per hectare per year, amongst the highest in the world for softwoods. A decade later, the UK based group Courtaulds joined forces with CDC to establish the Usutu Pulp Company. An unbleached kraft pulp (UKP) mill was built near the center of the developing forest which produced its first bales of pulp in 1961. Initially, the mill was built to produce 90,000 tons of pulp per annum, but it has been expanded to its current capacity of 220,000 tons of UKP per annum. Around 75% of the annual production is marketed overseas, through Hong Kong by Specialty Pulp Services, whilst the remainder is sold within the southern Africa region. In 1990, Sappi, the largest forest products company on the African continent and one of the top twenty forest products companies in the world, became the largest stakeholder in the Company. Usutu's Contribution to the Swazi Economy Currently, the Usutu Pulp Company is one of the Nation's largest employers, providing direct employment to about 2,000 people, 98% of which are Swazi nationals. In addition, the Company contracts out some of its forest and mill operations. It is estimated that in total, some 20,000 people are dependent on Usutu's continued profitable existence. In association with the provision of employment in the forest and mill, Usutu has had to create and maintain a complete social infrastructure including building two major villages and numerous smaller communities around the forest. The Company has also provided medical and social facilities and helped establish schools and shops. It is a significant contributor to the Swazi economy (contribution estimated at 15% of GNP) and a major earner of foreign currency. Sustainability Sustainability is of primary importance in the management plans of the forest. Usutu Forest's management policy has been broadened to include the sustainable use and management of the entire land base and not just the stands of pine. This holistic approach is being integrated 62 Country Papers-Summaries into an environmental management system which, once in place, will ensure that a certifiable end product is produced from the mill. Usutu harvests and transports almost I million tons of timber per year from its own forests to supply the mill. Timber is aged at roadside for an average of 3 weeks to reduce its moisture content to meet the mill's maximum allowable of 58%. Success Factors (a) Self-sufficiency in pulpwood is a major competitive advantage for the Company. The mill being in the center of the forest results in a relatively short distance for timber transport. These factors contribute to the forest providing, possibly, the cheapest pine pulpwood delivered to a mill anywhere in the world. (b) Staff functions have the specific objective of assisting the operational departments and providing the necessary inputs into the longer term strategy of yield improvement. (c) Usutu actively promotes capacity building of all its employees, providing them with skills through local and overseas training. (d) Historically, Usutu's operations have been done in-house. However, due to changing technological trends and financial constraints, non-core business is increasingly contracted out (about 40% of maintenance and harvesting, and 60% of timber transport). (e) Without question a key success factor for the Usutu operation has been the long term commitment of the Company to world class research done in-house. Its research work is internationally published and recognized. The research effort focuses on sustainable production and increased forest yields through breeding and improved sylvicultural practices. Forest operations have become more and more mechanized and efficient. In conclusion, the key success factors for Usutu are self-sufficiency in low cost wood, a single continuous objective of growing and producing a low cost end product for a defined market, and its commitment to human resources development and research. 63 African Forest Policy Forum-Proceedings ADOPTING A FARMING SYSTEM APPROACH TO FACILITATE PARTICIPATORY FORESTRY TANZANIA Mr. Richard Minja, Regional Catchment Forest Officer, HIMA Project Mr. Robert East, Agroforestry Advisor/teamleader, HIMA Project Context In the recent past, the Iringa region contributed a major share to the Tanzanian agricultural and natural resources productivity. When more demand for forest produce, arable land for cultivation, and other development activities was created due to a population increase, shifting cultivation, uncontrolled grazing, frequent bush fires, and overexploitation of forest resources for timber, charcoal and building poles reached alarming proportions. This resulted not only in the depletion of the natural forested land, but also disturbed the equilibrium of rural livelihoods and their interaction with the natural resource base. The Intervention and its Objectives In 1989, the HIMA Program, a land use management and natural resources conservation program, started its operations to check and reverse the severe environmental degradation in the Iringa region. The immediate objectives of HIMA aimed to: (a) Improve agricultural productivity and manage sustainability the area's natural resources to increase income levels and security; and (b) Improve catchment protection in priority catchment areas. The HIMA Program adopted people's participation, and institutional development and capacity building as primary tools, to achieve viable and sustainable agricultural and natural resources management, and catchment protection. Main Activities The Program took an integrated approach to natural resources management. It operated through the Community Development, and Technology Units of the Agriculture/Livestock and Forestry Departments within Iringa's District Councils. The first step was to select priority areas, or villages, to implement pilot Program activities. This was done on the basis of the location of these villages in the catchment area, severity of the surrounding environmental degradation, and the willingness of the local populations to adopt the Program. Few villages were selected at first, to enable HIMA test its approaches and activities before expanding. The Program's forestry activities were as follows: (a) Introducing agroforestry through sensitization and training campaigns, including raising awareness on gender issues as related to forestry; 64 Country Papers-Summaries (b) Providing support to individual and group nurseries (as opposed to distantly located central nurseries), and to a participatory woodlot establishment and management of natural forests, including common property woodland and government forest reserves (which include the renowned Eastern Arc (EA) forests with their extremely high biodiversity). Related activities undertaken include area re-surveys, boundary demarcation by tree planting, and biological studies; (c) Introducing drought resistant tree species to integrate forestry with soil and water conservation practices; (d) Supporting agroforestry research, particularly on-farm trials, which aimed at interfacing HIMA's interventions with existing stable indigenous production systems; and (e) Strengthening local institutions. Implementation Problems The current forest policy, approved in 1953, was found obsolete and irreconcilable with a participatory approach. Customary land tenure systems did not allow free access to land for tree planting, nor equal share of the benefits from trees amongst women and men. The proper administrations and local communities were being sensitized to the issues and their consequences. Discussions were initiated with the Forest Authority, while a pilot community- based forest management program was initiated in a pilot area of the EA forests. Results Despite a number of issues that remain to be solved, today, the Program can be considered to have achieved significant progress, illustrated as follows: (a) Farmers have been sensitized to agroforestry and general forestry; (b) Farmers and local government staff have been trained on agroforestry and resource husbandry technology; (c) Participatory planning and implementation of activities is an established process now; (d) The shift from large, central nurseries towards small but sustainable individual and group nurseries has been completed; (e) Capacity building of local government to improve the management of softwood plantations and the marketing strategies of their produce is ongoing; and (f) A pilot project for the joint local community/central government management of forests controlled by the central government was started in 1994. Lessons Learned and How they are Shaping HIMA Before HIMA, the existing abundant woody vegetation was being actively managed as a perennial crop in the established farming systems. The Program, recognizing the importance of building on and improving indigenous practices, has accorded the management of woody vegetation due importance within the agricultural sector packages it is offering. HIMA's staff are assisting and cooperating with farners in making this integration a success. Individual tree nurseries have proved to be more economically viable, easier to adopt, and more sustainable than central nurseries. HIMA is providing targeted support to individual nurseries in the form of seeds, polyethylene material, and farmer's training. This is expected to result in a significant tree planting by the local communities. 65 African Forest Policy Forum-Proceedings THE ROLE OF NGOs IN FACILITATING COMMUNITY PARTICIPATION IN FOREST CONSERVATION TANZANIA Dr. W.A. Rodgers, Vice Chairman, Tanzania Wildlife Conservation Society Context In recent times in Tanzania, forest resources losses, estimated at 400,000 ha per year, were attributed to policy failure. Evidence pointed to the root causes of forest loss as coming from outside the forest sector, including population growth, poverty, no alternative income opportunities, perverse incentives, etc. As international concern for the plight of the rural poor increased, especially after Governments and large donor projects failed to cope with poverty at the village level, donors formed partnerships with NGOs hoping for better results, and greater democracy and accountability. NGOs have proved to function well in the development field as they are closer to the grass roots and more focused in their programs, and they can have a major part in developing practical community participation schemes in resource management. Potential NGO roles include: Research, Innovation and Technology; Small-scale Financial/In-kind Support; Community Mobilization and Support; Information Gathering and Dissemination; Policy and Advocacy; and Networking. In Tanzania, the NGO movement is still relatively young and weak as it has been customary that the single political party ran most sectoral activities from village to national levels. There was no niche nor need for NGO activism or grassroots support organizations. Although Tanzania had a long history of decentralization, most natural resources were kept firmly entrenched in Government control. Decentralization only created another layer of bureaucracy, rather than brought decision making closer to the people. NGOs and Natural Resources Management and Conservation in Tanzania In recognition of the importance of biodiversity, coastal forest reserves (CFR) were put at the center of a priority investment profile within the Tanzania Forest Action Plan (TFAP). At the time, these CFRs were subject to severe encroachment for cultivation and charcoaling purposes. It was indicated that donor support for the conservation of the CFRs would be suitable for funding through an NGO. The Wildlife Conservation of Tanzania (WCST) was given responsibility for running the CFRs' conservation program. In the absence of guidelines and well-defined roles of the government at the Central and District levels for the management, protection and conservation of government-owned forests, WCST's main conservation activities hinged around empowering the weak Forest Department of the Coastal Region to deal with the powerful CFRs' encroachers. WCST acted as a: 66 Country Papers-Summaries (a) Channel for donor funding for conservation and education at the District level; (b) Operations and training conservation organization by demarcating and planting forest boundaries, running village nurseries, providing training to field staff, and convening meetings for the entities involved; (c) Information bank, issuing press releases, and documenting issues; (d) Advocacy organization; and (e) Facilitator in bringing together villagers, the press, and central and district administrations. Results Due to the role that WCST played in the realization of conservation activities, and the way how it managed their implementation, WCST gained stature, capability, better advocacy focus, and more credibility with the public and the government. The NGO and other conservation agencies changed their old policing conservation mode of operation into a more effective style, whereby conservation activities became part of overall land-use practices. The new conservation paradigm has become "to work with local people, seeing them as part of the solution, rather than the problem". Lately, WCST has attempted to take the conservation issues to a higher level, to mobilize political backing and endorsement by organizing an informational seminar for Parliament, chaired by the Minister for Natural Resources, and seeking to involve the members of Parliament in the issues that WCST came up against when implementing the conservation plans for the CFRs. This led to that the President made a strong statement on the Environment, saying: "It is the responsibility of the Ministry of Natural Resources and Tourism to conserve natural resources and to promote sustainable use of these resources, and to take actions required to curb uncontrolled forest and wildlife resource degradation". This lead to a new outlook in formulating natural resources policy. This outlook is people centered, environmentally conscious, and is based on the principle of sustainability. In the Wildlife Sector, the government would establish Wildlife Management Areas. Rural communities will be invited to participate in their conservation and sustainable use. As to the forestry sector, the President's statement would be translated into actions to include: (a) Developing and putting in place appropriate policies and legislation which guide and rationalize the conservation of forest resources and their wise and sustainable use; (b) Developing institutional capacities to manage forest resources; and (c) Most importantly, raising awareness among the communities on the national importance and household financial benefits accruing of owning and managing their own trees, if not forests. Has NGO Activism Worked??? If it is meant "has deforestation been stopped?", then the answer is NO - not yet!. It is believed though that an impact has been positively registered. At the same time, the methodologies used are being put to the test to check their effectiveness and replicability; awareness is being raised; achievement of progress is demonstrated; and the relevant entities are pushed to implement what proved to work. However, more community-based NGOs and more time is needed to make a widespread significant change. 67 African Foresi Policy Forum-Proceedings COMMUNITY-BASED NATURAL FOREST MANAGEMENT in Duru-Haitemba Forest, Arusha Region, and Mgori Forest, Singida Region TANZANIA Dr. Liz Wily Context The Duru-Haitemba miombo forest in the Babati District, Arusha Region, a 9,000 ha area, and the Mgori forest in the Singida District, Singida Region, a larger and more intact miombo woodland of 40,000 ha, were in a state of acute decline, with loss of area and biodiversity. Throughout the period these woodlands were under government control and management, encroachment, shifting cultivation and excessive wood harvesting for timber and charcoal were taking place and could not be checked. The situation was exacerbated when Government decided to gazette the Duru-Haitemba forests, which were a series of linked wooded ridges, as a single Forest Reserve, and actively sought the support of local communities for the almost finished gazettment process. It was clear however, that local people did not support the withdrawal of what they regarded as "their" forest into the hands of the state -- indeed, since the posting of Forest Guards to the area some years previously, local people had more or less adopted a deliberate policy of getting what they could out of the forest in terms of land and products as fast as they were able, prior to its gazettment. The Mgori forests were subject to different circumstances, no less devastating, including illegal commercial hunting and timber extraction by outsiders, administrative boundary problems with adjacent regions, and especially the appeal the large and remote area holds for commercial shifting cultivators and charcoal burners. The Duru-Haitemba Forests Initiative With informal support from the local authorities (Babati District Council) and District foresters a process was started to assist selected villages adjacent to Duru-Haitemba to explore if and how they could conserve and manage the forests themselves. Gazettment was suspended pending demonstration by the villages that they could manage the forested ridges, which was empowering and encouraging to the local population. The villagers drew up simple but effective management plans and forest-use rules, which were debated and refined by the whole community during village assemblies. The most popular management strategy was based upon geographical and political divisions in the village, whereby each registered sub-village looking after that part of the forest to which it was adjacent. The demarcation of each village forest boundary and zoning within the forest (Sustainable Use Zones, Grazing Zones, Protection Zones), were agreed upon and executed. Village Forest Guards 68 Country Papers-Summaries (Walinzi) were selected by each community to patrol their forest given exemption from other communal labor contributions such as road and school building. Each village elected a Village Forest Committee (VFC), the composition of which has steadily shifted from village leaders to ordinary villagers, reflecting a "democratization" movement within the village. The move promoted that not only Village Forest Reserve management, but all activities carried out in the village be more directly accountable to the community at large. Considerable problem-solving by the communities themselves had to be done to keep the process going. The villages were assisted to rephrase their management plan and rules into Village By- Laws, approved as such under the District Authorities Act in 1995. Each village thus became, by law, the legal authority and manager of that part of Duru-Haitemba forest which is adjacent to their own settled village area. Moreover, by law, villages were able to own property as a community. The villages in the vicinity of Duru-Haitemba had applied for such ownership before the legislating the Village By-Laws, and Title Deeds have since been awarded. Now, these villages are in the unusual situation of being, in law, both the owners and managers of their respective woodlands. The Mgori Forest Initiative The strategy adopted in Duru-Haitemba was replicated in the Singida Region, where the vast Mgori forest is located. The forest is now actively and successfully managed by the adjacent village communities through Village Forest Committees, the deployment of village youth as patrolmen of their respective Village Forest Reserves, and the establishment of agreed "rules" by each village, which have the force of village By-Laws. In addition two in-forest hamlets play a key role in protecting the more remote corners from encroachment, in return for permission to remain within the village forests for the next five years. Unlike Duru-Haitemba, the Mgori villages do not yet have legal ownership of the Village Forest Reserves (VFR), as they have yet to have their village boundaries, within which the VFR fall, receive formal recognition and entitlement. Even when that happens, the villages will continue to manage in close collaboration with the District Council, which has provided a liaison officer for this purpose, due to the complex circumstances of Mgori. Results As a result of the novel approach to natural forest management in the Duru-Haitemba and Mgori forests, and at virtually no cost to Government, encroachment, pitsawing, charcoal burning and a range of lesser destructive activities have almost entirely ceased, boundaries are intact, incursion limited, flora and fauna recovering. The Duru-Haitemba forest is now under the full ownership and active management of the adjacent registered and incorporated village communities, and the Mgori forest is managed by the adjacent villages in legal and institutional collaboration with the local District Council. In the Mgori forest in particular, resource overexploitation and incursion have been dramatically reduced, but offenses do still occur. Several of the villages have in fact earned considerable revenue through the levy of fines upon offenders. All managing villages have established Forest Management Bank Accounts. 69 African Forest Policy Forum-Proceedings The shift in the Village Committees from village leaders to ordinary villagers held several benefits, including keeping potentially corrupt village leaders in line, and encouraging a fuller and wider-based village support, accountability and local commitment. These villages have been much empowered by the process, which has heightened community involvement in other village issues, natural resource management matters in particular. Thus, for example, livestock control (numbers and grazing) is now on the agenda in several villages, and in others, the Village Forest Committees are tackling the management problems of their low-lying swamplands (mbuga). On-farm tree planting has voluntarily taken off. Lessons Learned (a) All the forest-managing villages have found it necessary, through trial and error and heated discussions, to modify and refine their management plans as they went along, and to address different issues that arose at different stages of the implementation of these plans. Being flexible and responsive was one ingredient of this initiative's success. (b) The job "description" of the local government forester changed from policeman to respected and sought-after technical adviser, a highly rewarding change in how local communities and government interacted. (c) Addressing the issue of control and authority over forest resources and restructuring the related administrative body to provide the most attractive incentive for full and proper guardianship - the right to make decisions - are key elements in the success of this new approach to resource management. (d) A shift in the locus of control over forest resources from Government to the local community does not result in the much-feared uncontrollable, free-for-all, and destructive access, but quite the opposite. (e) Having local communities/villages exist by law as a legal corporate was a key catalyst in this initiative. (f) The community which has direct economic dependence on a forest will have the incentive to be involved in management. In parallel, unless the needs of this community from the forest are met, the community will not have any incentive to be involved in its conservation management. (g) Setting up a procedure to make the Village Forest Committees accountable to the whole village was important to the success of this approach. (h) The need to clarify, legally, the rights and responsibilities of all those involved becomes very pressing as a village undertakes active forest management. The legal framework enables the enforcement of rules and legal action against offenders. 70 Country Papers-Summaries DONOR COORDINATION IN THE FORESTRY SECTOR TANZANIA Mr. RPP. Yonazi, Principal Forest Officer, Ministry of Tourism, Natural Resources and Environment Context Tanzania depends heavily on donor support for most of its development programs. For instance, 90% of the development and management funds of the forestry sector come from external financing. Such level of reliance makes donor coordination a prerequisite to a coherent and efficient developmental framework. The Intervention and Main Activities In 1988, Tanzania embarked on the preparation of its National Forestry Action Plan (NFAP). Efforts were then made to achieve effective donor coordination. Donors' meetings, workshops and seminars were held to discuss both sectoral and inter-sectoral issues touching on the development of forest and forest-related resources. Status reports and different relevant information were prepared and distributed to other related sectors and the donor community. Benefits and Results of Donor Coordination in Tanzania Various benefits arose from Government taking the lead in donor coordination: (a) Heavy reliance on donor financing usually results in following donors' priorities in developmental activities. With donor coordination, as Government takes the lead, it becomes possible to direct donor support towards national priorities. This enabled Tanzania to channel much needed funds for the development of industrial forest plantations. (b) Abrupt changes in some donor policies, priorities and procedures occur. This is inevitable as it stems from international new directions and theories in development. Government leadership and pre-change donor coordination helped prevent any confusion and abrupt changes in the ongoing national forestry development activities in the attempt to adjust to donor new policies and priorities. (c) Situations such as when donor-supported projects duplicate and operate in parallel to existing forestry administrative set-ups, competing for scarce qualified human resources, are prevented. (d) As inter-sectoral coordination is a prerequisite to an effective donor coordination, accordingly, existing land-related policies and legislation had to be analyzed and reformed where necessary. This helped clarify and define the national vision on issues relating to the management of natural resources, including land; and the roles of the central and local governments, the private sector, NGOs, and the local communities. 71 African Forest Policy Forum-Proceedings Currently, a National Land Policy has already been fornulated and put in place. However, details of the policy's implementation arrangements have yet to be smoothed out. On the other hand, other key policies have not been revised or formulated yet. This is proving now to hinder the effective coordination of donors' inputs. Problems Encountered (a) As several donor-supported projects and programs have a bearing on forestry but are coordinated under the environment or land-use programs, a multiplicity of coordinating sectors and set-ups is being experienced. (b) Sufficient information on forestry-related issues is lacking. What already exists is not efficiently exchanged. This has hindered better forest information management and networking. 72 Country Papers-Summaries REFORESTATION OF REFUGEE CAMPS--WEST NILE LESSONS LEARNED FROM IMPLEMENTATION UGANDA Mr. Peter McLinton, CARA Coordinated Development Context The North Western part of Uganda has been settled by masses of refugees for a long time. Permanent and transit refugee camps have been created, impacting negatively on the area's natural resources. In the Rhino Camp and the neighboring Koboko County, for example, parts of the forested areas have been devastated by massive refugee presence and almost totally clear felled. The Intervention and its Objectives A Reforestation Program was designed and implemented by CARA, with the objectives of reforesting clear felled areas, and enriching the existing still-forested lands in the Rhino Camp, and in and around transit refugee settlements in the Koboko County. Main Activities The type of activities somewhat differs between the Rhino Camp and the Koboko County due to the existing operational circumstances. In the Rhino Camp, the daily operational control of the whole area were concentrated in the hands of UNHCR and its implementing partners, while the situation differed in Koboko County, where the area of operations was widely spread out and not under one single authority. Rhino Camp: A large central tree nursery with a 2 million seedling capacity was established. The seedlings were immediately available to the farmers. Also, direct seeding of fuelwood species was done using ox-drawn plows. Koboko County: Five large Cooperative Tree Nurseries were established. The distribution of seedlings was handled with the help of a local NGO, local community leaders and groups, and local farmers whose participation was sought from the beginning. Through seminars including all local groups, locals were trained on tree husbandry, and their awareness was built up with respect to the financial benefits that could be expected from agroforestry. A Blacksmith and Tool-making Resource Center was built to support forestry activities by making and maintaining agricultural and tractor tools. Locals were also trained on how to make and use fuel- efficient,stoves. 73 African Forest Policy Forum-Proceedings Results (a) Agroforestry has been readily adopted in many cases. As an example, one farmer has now around 80,000 trees, which he uses as collateral to borrow money to purchase more land for tree planting. (b) The program has helped build the capacity of a local NGO, the Koboko Rural Development Trust Fund. With a program target to enlist the assistance of, and distribute tree seedlings to, 5,000 farmers through that NGO, the target is already half achieved. Moreover, the NGO itself already owns several wood lots and plans future short (fuelwood and pole lots) and longer terrn timber plantations. (c) Agroforestry is firmly established in Koboko County as the local authorities and mounting numbers of farmers are participating in the program. Implementation Problems (a) Farmers did not take interest, as was hoped, in the propagation of fuelwood by direct seeding, which is the most reliable and cost effective method available. (b) Women's groups did not get involved in the forestry operations as much as they were able. (c) Efficient monitoring has proved to be particularly difficult to maintain when a large group of farmers and forest workers is involved. (d) Timber is target to an exploitive business, whereby some farmers sell their trees to pit sawyers for very little or in exchange for livestock in a disadvantageous deal. The timber then, is resold to traders who dump it on the market. A major portion of this timber is later discarded by carpenters because it is badly sawn and full of flaws. Lessons Learned (a) One major cause for the wide adoption of the program by small-scale, as well as large-scale, farmers is the effective communication and awareness build-up with respect to potential financial gains. (b) Government forest policy and legislation is crucial to giving the proper incentives to encourage planting and trading in trees, especially the high value species. 74 Country Papers-Summaries LOCAL PARTICIPATION FOR THE CONSERVATION AND MANAGEMENT OF NATURAL FORESTS UGANDA Mr. Gershom Onyango, Assistant Commissioner for Forestry, Forest Department Ministry of Natural Resources Context The Mount Elgon National Park has been under government ownership and control since the 1930s, when it was first gazetted as a Central Forest Reserve (CFR). It was classified as a CFR primarily because of its water-catchment value, and its significance in nourishing many rivers and lakes (e.g. lake Kyoga in Uganda and Rudolf in Kenya). Over one million people in Uganda alone depended on the water from the mountain for domestic and agricultural use. With time and declining funds from Govemment, especially in the 70s and early 80s, and the subsequent breakdown of law and order, Mt. Elgon, like most of the forest reserves in the country, became heavily degraded due to agricultural encroachment, and excessive illegal cutting of timber. Cultivation expanded up the steep slopes of the mountain, causing severe erosion. Before gazettment, the local communities living around the Mount Elgon Forest were dependent on the forest for their subsistence needs in firewood, building poles, food (honey and vegetables), medicines, etc. Further to the fact that they were not consulted when the area was made a forest reserve, they were also denied any rights to the forest (which, ironically, they have always "owned", managed and conserved using indigenous knowledge and institutions). The only privilege granted to them was that of collecting non-timber products, in reasonable quantities, for their domestic use. The Intervention, its Objectives and Main Activities In 1988, the then Ministry of Environment Protection, in collaboration with the World Conservation Union (IUCN), identified the Mt. Elgon Forest as one critical area which required urgent intervention to reverse the ongoing trend of degradation. With financial assistance from the Norwegian Agency for Extemal Cooperation (NORAD), and technical assistance from IUCN, the Mt. Elgon Conservation and Development Project was started to help the Forest Department regain control of the encroached forest. The Project aimed to restore the degraded forest, and reduce the dependence of the local communities on its resources, while at the same time offering income generating opportunities such as the planting of a live marker of Eucalyptus grandis around the forest, to be used as a future source of fuelwood and poles. The Project helped individuals and groups to start nurseries to produce the necessary seedlings by providing agricultural inputs, including seed. The Project bought the seedlings from the nursery operators for planting in its area of operation. Indigenous tree species were planted in 75 African Forest Policy Forum-Proceedings the previously encroached but now evicted areas inside the forest. Local people were employed by the Project, after some initial reticence, to carry out the various activities. Working with existing government departments and decentralized administrative units (Local Councils), it was possible for the Project to reconcile "warring" parties (local communities and Forest Department staff) so as to jointly devise a strategy for the long-term conservation of the Mt. Elgon ecosystem for present and future generations through a sustainable utilization of resources. Implementation Problems In 1993, the government turned the forest reserve into the Mt. Elgon National Park (MENP) without consulting the local people. The restricted nature of the National Parks Act and the militaristic mode of operation of National Parks staff almost eroded what little the Project and other agencies had achieved. Due to misinformation, the local communities around the forest resented its transformation into a National Park, a move they feared would deprive them of the privileges they were enjoying. Some of the illegal activities which had died down started to become frequent. The use of force by Park Rangers proved futile as their number of fifty was unable to enforce the Parks Act meaningfully. After a lot of persuasion by the Project, MENP agreed to adopt a new management style with a less confrontational approach. Park Rangers were trained in extension and public relations skills, and by the end of 1993, relations between park staff and local communities improved tremendously. Lessons Learned Through the initiative of the Project, permission was obtained in 1995 from the Director of Uganda's National Parks Authority to implement pioneer collaborative management concepts in two pilot parishes. The selected parishes were among a total of six in which local communities carried out a resource use assessment in 1994. They also represented unique challenges in that one of them had a long history of conflict with the Forest Department arising from persistent encroachments in the reserve, while the other was a model parish in which the inhabitants resisted any form of cultivation in their part of the reserve due to the importance they attached to the produce they got from it. They however had a long history of grazing their cows in open grasslands within the forest. Negotiations to define the roles and responsibilities of the communities and Park staff followed. Discussions between Government and the Parish Local Councils culminated in the election of a committee representing the different categories of resource users. This committee and the park staff held many consultations and negotiations for a period of five months before a draft agreement was produced. Both local communities and the Park staff are happy with the way things are going now save for a few contentious issues of in-park grazing, smoking of bamboo shoots in the forest, and cutting of polewood, which have yet to be resolved. This approach, is still in an experimental stage. Its replicability in other areas will take time to be proven. Nonetheless, it is an important milestone in the history of Protected Areas management, especially National Parks, whereby the opinion and wishes of local communities have been taken into consideration since the beginning of the initiative. 76 Country Papers-Summaries PROMOTING COMMUNITY-BASED REFORESTATION AND AGROFORESTRY ZAIRE Dr. Mujika Kankolongo, National Environment Action Plan, Ministry of the Environment Context In Zaire, the rapidly increasing population is mainly concentrated on one third of the land. This, coupled with a shifting cultivation style of agricultural production, and a non- discriminatory collection of firewood, are the main causes of the extensive forest resources degradation. The shifting cultivation has caused the loss of vast forest expenses, the depletion of soil nutrients, and the less than potential agricultural production, resulting in shorter forest fallows for faster economic returns, and confirming the interdependence of the forest, soil fertility, and agricultural production. On the other hand, the utilization of wood as the main source of domestic energy by a considerable part of the population was at the root of another socio- economic contention. The Intervention In light of the actuality of shifting cultivation and the high demand for fuelwood for domestic use, Government decided to revisit and amend its management plan of forest resources, so as to ensure their permanence. Two strategies were adopted in the new management program for the rational use and conservation of the forest resources: stabilization of agriculture through agroforestry, and reforestation of denuded and thinning areas. The simple principle "Whoever deforests, reforests", was taken as a slogan in the campaign waged for the restoration of the forest resources. Main Activities An innovative methodology was adopted in support of promoting agroforestry and communal reforestation: (a) Establishing agroforestry centers for demonstration, experimentation, and training purposes; (b) Securing the full participation of the local population; and (c) Researching for the most appropriate and adaptable tree varieties and species to the ecological and socio-economic conditions of each particular area. The forestry research and extension activities covered subjects previously chosen with the participation of farmers and local communities, which have also been actively implicated in 77 African Forest Policy Forum-Proceedings the planification and implementation of the various activities. The active involvement of farmers was secured through local NGOs and community groups selected on the basis of their experience and knowledge of the particular rural settings. Agricultural inputs, implements and seed were also distributed to the farmers. Results The communal approach to reforestation has been termed successful up to now. Unit cost for this type of reforestation was less than that incurred in establishing industrial plantations, which requires the mobilization of important funds, and heavy equipment. The results of research trials, and the accompanying intensive extension program, have facilitated the task of communal involvement in the reforestation and agroforestry activities. Implementation Problems The implementation of the activities faced various problems such as: (a) Unclear land tenure and tree proprietorship; (b) Shortage in quality seed; (c) Inadequate nursery management; and (d) The ever-present threat of bushfire. 78 Country Papers-Summaries LOCAL PARTICIPATION AND BENEFIT SHARING IN WILDLIFE MANAGEMENT--THE CAMPFIRE EXPERIENCE ZIMBABWE Mr. TN. Maveneke, Director, CAMPFIREAssociation Context In the past, the wildlife in Zimbabwe was centrally managed, alienating local people from the wildlife resources on which they previously counted for their livelihood. This created an environment of mutual suspicion between the local people and the Department of National Parks and Wildlife Management personnel, and led to a greater poaching of resources. This central management style partially changed in 1975 when the first amendment of the Parks and Wildlife Act was promulgated to allow large commercial farmers to utilize game on their farms for tourism purposes and generate income doing so. It provided the proper incentive for farmers to opt for wildlife fanning. The Parks and Wildlife Act was further amended in 1982 and 1990 to allow for benefit sharing on communal lands which constitute 42% of the country. The Intervention and its Objectives The 1982 and 1990 amendments to the Parks and Wildlife Act allowed the Rural District Councils to embark on the Communal Areas Management Programme for Indigenous Resources (CAMPFIRE). The stated objectives of CAMPFIRE are to: (a) Allow rural communities to utilize natural resources in their areas. (b) Develop local institutions for managing these resources. Main Activities CAMPFIRE's main activities include: (a) Sustainable utilization of wildlife through trophy hunting (b) Democratic elections of institutions at village, ward and district levels. (c) Investing in community-based projects such as schools, clinics, etc. (d) Participatory training of locals for local empowerment. Results CAMPFIRE has achieved phenomenal results in terms of capacity building and environmental management. Public environmental awareness has improved remarkably. 79 African Forest Policy Forum-Proceedings The success of the CAMPFIRE's principle of sustainable utilization of wildlife depended on setting quotas where local communities participated. Thus, quotas on various wildlife species were set by the local people with technical input from the Department of National Parks and Wildlife Management, and the World Wide Fund for Nature (WWF). Setting and adhering to quotas helped reduce poaching. With time, CAMPFIRE Rural District Councils have improved their marketing skills, increasing revenues without drastically increasing quotas, thus, improving their economic returns while ensuring biodiversity conservation (which is the very basis of sustainable development). CAMPFIRE also encouraged the formation of democratic natural resources institutions/committees at all local levels. These committees are elected and are a fusion of civic and traditional structures which makes them very inclusive. This ensures that decision-making is legitimate and representative of all concerned. Local empowerment was achieved through training in leadership skills, bookkeeping and project management. Benefits were shared between the Rural District Councils (which levy up to 25% of CAMPFIRE revenues) and the local communities. This has allowed for an improved relationship between the Councils' staff and their lower level constituents. Finally, CAMPFIRE funds were invested in different activities in the self-interest of the communities involved. These activities included training of locals as game guards, scouts, problem animal reporters, and bookkeepers to help them look after their own resources; and demand-driven rural infrastructure development which generated employment. Implementation Problems Some problems were encountered while implementing CAMPFIRE activities, and could be summarized as follows: (a) Extension services are lacking. The need to train more trainers within the communities is great, demanding more financial and manpower resources. (b) Problem animals are causing great damage to people's crops. A strategy for the control of these animals needs to be formulated to contain the animals and not destroy them. (c) The on-going international ban on trade in ivory undermines legitimate trade and gains from elephant products. (d) A growing human population that encroaches on wildlife areas. Strategies are being worked out to properly settle land-hungry families. (e) The lack of a comprehensive land tenure arrangement is being felt. Lessons Learned (a) The sense of ownership/custodianship assists in anti-poaching. (b) Traditional values give legitimacy to local environmental management through bestowing protection on species such as lions, pythons, etc. (c) No community projects could be sustained without viable local institutions. (d) The central environment management style does not work. CAMPFIRE's experience needs to be broadened to cover other natural resources. 80 Country Papers-Summaries INSTITUTIONAL REFORMS AND ACTIVITIES TO ALLOW LOCAL PARTICIPATION IN FOREST MANAGEMENT ZIMBABWE Mr. C. Phiri, Projects Coordinator, Forestry Commission Context Zimbabwe is beset with numerous environmental conservation and management problems, especially in catchment areas, including soil degradation and erosion, siltation of rivers and reservoirs, deforestation, and desiccation of wetland ecosystems, attributable to short- term agricultural production practices. Unfair land distribution and poverty contributed to the unsustainable use of natural resources. Legislation governing natural resources utilization and management in Zimbabwe has been highly restrictive in involving local communities in the process. Up to this date, the mechanisms used to facilitate management decentralization such as those conferring proprietorship of natural resources, and control over their management and the woodland- derived revenues, are still not well articulated. This hinders the implementation of much needed national policy reforms, which, if coupled with effective institutional changes, would provide a sound basis for sustainable forestry management. The Intervention In recognition of the gaps that need to be bridged before these national reforms could be implemented, the Forestry Commission (FC) underwent a process of internal reforms and restructuring, and implemented programs which facilitated a much needed policy and legislative change. Main Activities and Results The internal reforms and programs could be summarized as follows: (a) Institutional restructuring: FC had previously conceived a Rural Afforestation Program based on traditional forestry whereby foresters would produce, and provide the communities with, firewood through the planting and distribution of free Eucalyptus seedlings. In 1982, FC created a new Division, the Rural Afforestation, to implement the afforestation program. The project failed to achieve its purpose, which gave FC the stimulus to review its internal structure and strategies. This lead the organization to make an effort to separate its commercial activities from those that were needed to support community participation in the management and utilization of forests. An institutional restructuring took place when two separate Units were created: the State Activities, and the Commercial Forestry. 81 African Forest Policy Forum-Proceedings (b) Decentralization of seedling production: The implementation strategy of the Rural Afforestation Program was to start 49 central nurseries in 16 districts to act as seedling distribution and demonstration centres, and establish Eucalyptus block plantations in the dry, and urban areas to act as reserves for fuelwood, which would reduce demand on indigenous woodlands. This strategy was not successful in achieving the expected results and has now been abandoned. A more effective approach has been instated, whereby seedling production and woodlot establishment are handled by individuals or local groups with the FC playing the role of a catalyst. The new approach has not only more than doubled seedling production from the customary 3 million, which the central nurseries used to produce, but has also helped the locals acquire management and technical skills in seedling production. The species planted, and the method of planting have also been changed to fit better the needs of the communities. (c) Resource sharine: Indigenous Forest Management excluded the local communities from any participation in the decision-making and implementation of management plans. To test alternative management arrangements which include the locals, a pilot program for resource sharing has been introduced in Mafungabusi Forest which is, primarily, a water catchment area. The locals, although not being allowed to settle in the Forest, are given management authority over specific forest areas through a Resource Management Committee. Rules of forest access and utilization are developed through tripartite agreements involving the Resource Management Committee, the Local District Council and Forestry Commission. Lessons Learned Indigenous knowledge and initiatives, when properly recognized and allowed to flourish, provide stimulus and guidance for choosing the best practices which result in sustainable forest management. In the Ntabazinduna area near Bulawayo, management of the acacia woodland has been greatly improved through the recognition of local know-how and building on it. While legislative reforms provide a means for increased local participation in forest management, providing technical and management skills and relevant information, and allowing for effective communication are a prerequisite. 82 Country Papers-Summaries THE ROLE OF THE PRIVATE SECTOR IN THE SUSTAINABLE MANAGEMENT AND DEVELOPMENT OF FORESTS IN SUB-SAHARAN AFRICA Interafrican Forest Industries Association (IFL4) Context The role of the private sector in forestry, including timber industry and timber trade, especially in the developing world, has not been given adequate attention and importance in the past, in international forestry meetings. Forest policy will not be efficient without a healthy private sector to contribute to national development and lead the change towards sustainable practices in tropical forest management. It is particularly important to the private sector that forests be well managed on a sustainable supply basis as timber industry and investments are based on long-term projections. The private sector is a partner to the government and works within the country's development policy, laws and regulations. Private concessionaires are also partners to local communities, bound by all that this entails of environmental, economic, and social obligations. All partners must fight poverty together. Collaboration with Local Communities Private companies do not need encouragement to work with local communities. They must live, and have been living, in symbiosis with the population in their concessions, for without a continuous dialogue, mutual understanding and compromise, timber harvesting and industrialization are not possible in rural areas. This means that sustainable forest use and agriculture are closely linked as, generally, companies involved with timber harvesting and industrialization do not have the means nor the expertise for agricultural production. The private sector in Africa honors requests from the local populations to improve infrastructure and road construction when this is supported by Government and is financially feasible. Laws and traditional rights must be respected by private companies. Illegal hunting, and hunting of protected species by local communities occur, however, the private sector has no legal jurisdiction to enforce the law on the populations. IFIA member companies conduct awareness raising, informative and educational campaigns, as it has been proven that such activities yield much better results than confrontation and punishment. The Private Sector and Research The need for new knowledge enabling sound forest management is already felt. The private sector is open and ready to cooperate with scientists on research. However, the private sector in Africa has neither the knowledge nor the financial means to carry out research on its own. 83 African Forest Policy Forum-Proceedings It is the private sector's opinion that the international donor community, in its call for global responsibility for biodiversity, should participate in financing research projects on the impact of natural forest use on their ecology and sustainability, which also impacts on the rural development of the communities living in primary forests. Comparing West and Central Africa to Southeast Asia Such a comparison puts African timber harvesting and industrialization at a serious disadvantage, and is misleading if it is not mentioned that in Southeast Asia, timber harvesting is 10 times higher per unit of land, transportation distances to the port of embarkation and costs are almost half of Africa's, not counting the cheaper river transport option available, wages are much lower, and the natural regeneration of the high-valued species is faster. Nonetheless, the main Central African species like Sapeli and Sipo compete directly with the main Southeast Asian species Meranti and Merbau on the international markets. Concessions through International Bidding There is a growing concern among the African private sector with regard to the new international donor community desire to establish international bidding, for many reasons: (a) Most African companies would be excluded as they lack the necessary funds. (b) Winner bidders might pay a higher price for reasons not necessarily connected with better forest management and better social and economic integration in the national economy. (c) The style of operation of non-African companies, such as the Southeast and East Asian multinational corporates which have a far greater financial potential, is different than the medium-sized African companies. (d) A sorry situation would be avoided in the future if African countries award concessions to companies based on their local investments, reputation, and offer of employment opportunities. Timber Certification and Prices Several issues are associated with certification: (a) Small and medium-sized companies will not be able to afford the costs of certification, which must, then, be transferred to the end-users. (b) One fifth of African timber is exported to countries interested in certification, which means that these countries will have to bear the full burden of certification costs. Are those importers and retailers asking for a "green label" interested in paying the price, and motivating the consumer to buy the certified product? If so, marketing strategies should be amended accordingly. A partnership between producers and retailers becomes possible when both are willing to invest in, and promote the consumption of, tropical timber produced in sustainably managed forests. 84 Country Papers-Summaries Use of Primary Forests It is the opinion of the African private sector that it is unrealistic and unproductive to declare large expanses of primary forests off-limits. It would much better pay off to support research, sylviculture, and combined agricultural/forestry timber industry projects designed for sustainable land use. International financing can help African countries boost their economy while balancing use (timber harvesting), conservation (buffer zones), and protection of primary forests. Impact of Taxes and Revenues on the Timber Industry Excessive taxes could burden private enterprise to the point of discouraging it from investing further. This is counterproductive to the national economy. When the market price does not cover production costs and imposed taxes, there will be no sustainable forestry development, nor timber industry. A company's profit margin is necessary for its financial health. Currently, there is not enough margin for an African company to cut its usual production costs and bear the additional costs of better forest management. Increasing taxes, fees and duties is directly related to the life and death of the private sector. Instead, appropriate incentives could be given to encourage sustainable management and sylviculture. Overloading the timber industry with duties and taxes will actually favor the use of polluting materials, e.g. plastics and aluminum, lower forest value through lower consumer demand, decrease exports, encourage illegal felling, and slow down the process of better forest management in general. 85 African Forest Policy Forum-Proceedings 86 PARTICIPANTS' REFLECTIONS AND COMMENTS ON THE IMPLEMENTATION EXPERIENCE OF THE NEW FORESTRY AGENDA SYNOPSIS Issues and Recommendations (a) People's basic needs must be addressed in parallel with policy implementation, as the poor and hungry have more important concerns than caring for the environment; (b) Village committees/organizations must represent all layers of the local community and avoid being used in the interest of the powerful; (c) Resource tenureship is very critical. Transferring ownership to local communities is considered a powerful incentive to secure their active participation in the sustainable management of forest resources; (d) Stakeholders' roles, rights, responsibilities and benefits within the new/reformed forest policy environment must be well defined; (e) In a national forum to define new policies, Government must have the last word as it is its responsibility to preserve the national interest; (f) Forestry policy reforms should be adopted to the socio-economic context of the country; (g) Project results must be disseminated to the stakeholders and policy makers; (h) Project duration must be long enough to allow for the internalization of institutional changes; (i) The local Government must be involved in any forest resource management activities even if the project entry point is at NGO or Central Government level; (j) Forest institutions are often under-funded and under-supported. Capacity building and improved forest policies must assist these institutions to work efficiently towards a sustainable resource management; (k) As the impact of refugee presence is complex, guidelines are needed on how to best mitigate it with the available funds; and (1) Classifying trees in categories such as "Reserved Trees" causes much aggravation to the local communities and others. This issue needs a serious impact-analysis before any measures are taken. Reasons for a Successful Intervention (a) A real need and willingness to change (e.g. due to current policy failure); (b) A land resource classification based on local traditional knowledge rather than on an imported rationale (as in the Mali NRM Project); (c) A forest research program that is multi-disciplinary, demand-driven, linked to international research networks, making use of the available information, and having the full participation and backing of all stakeholders. 87 African Forest Policy Forum-Proceedings General Observations (a) In some countries, people value "asset" trees (for fruit and timber production) more than fuelwood producing trees; (b) Motivation to participate in the conservation efforts and sustainable management of forest resources is usually proportionate to the expected benefits (including resource tenureship and improved access rights); (c) A significant change in forest management can be achieved by changing the interpretation of the current policy without a formal review and legislation modification; (d) Foresters have difficulty in relinquishing power which hinders a participatory approach to management. They need to be given some motivation to facilitate a forest management style change. 88 LIST OF PARTICIPANTS Mr. Issouf Soulamna ANGOLA Inspecteur des Eaux et Forets et CHAD Directeur du Projet PNUD: Ms. Maria Luisa Correia Filipe "Ammenagement des Forets Naturelles" Mr. Abdel-Hamid Mahamat Ali Agronome Ministere de I'Environnement et de l'Eau Directeur Adjoint du Petrole, des Direction Nationale de l'Environnement 01 BP 575 Energies Nouvelles et Renouvelables Secretariat d'Etat de l'Environnement Ougadougou Ministere des Mines, de l'Energie et du C.P. 10566 Tel: (226) 30 14 91/30 09 07 Petrole Luanda Fax: (226) 36 74 58 BP 94 Tel: (244-2) 33 58 44 N'Djamena Fax: (244-2) 33 26 11 Tel: (235) 52 34 37 CAMEROON Fax: (235) 52 25 65 Mr. Domingo Nazare da Cruz Veloso Ingenieur Forestier Mr. Felix Essame Mr. Ahmat Agala Institut de Developpement Forestier Conseiller Technique Chef du Projet Gestion des Ressources Ministere de l'Agriculture et du Ministere de l'Environnement et des Naturelles Developpement Rural For6ts Direction des Forets et de la Protection de C.P. 1257 Yaounde l'Environnement Luanda Tel: (237) 22 98 35 Ministere de l'Environnement et du Tel: (244-2) 32 39 34/32 35 81 Fax: (237) 22 94 84 Tourisme Fax: (244-2) 32 39 34 BP 447 Mr. Samuel Wehiong Makon N'Djamena Secretaire General Tel: (235) 52 31 23 BENIN Ministere de l'Environnement et des Forets Mr. Victor Lawin Yaounde COTE D'IVOIRE Direction Analyse, Prevision et Synthese Tel: (237) 22 94 86 Ministere du Developpement Rural Fax: (237) 22 94 84 Mr. Martial Me Kouamd BP 03-2900 Directeur, Centre de Gestion Gagnoa Cotonou SODEFOR Tel: (229) 30 02 89 CENTRAL AFRICAN REPUBLIC 01 BP 3770, Abidjan 01 Fax: (229) 30 03 26 Tel: (225) 44 36 02 Mr. Gustave Doungoube Fax: (225) 77 24 21 Mr. Mahouna Tchiwanou Directeur Gn&ral R6sponsable du Volet Amrnagement Direction Generale de l'Environnement Forestier Ministere de l'Environnement, des Eaux ERITREA Projet Gestion des Ressources Naturelles et Forets Parakou BP 830, Bangui Mr. Hagos Yohannes Tel/Fax: (229) 61 06 84 Tel: (236) 61 89 08/61 15 99 Head of Wildlife Conservation Fax: (236) 61 57 41 Ministry of Agriculture P.O. Box 1048 BURKINA FASO Mr. Pierre Geba-Mano Asmara Directeur General, Services Regionnaux Tel: (291-1) 18 10 17 Mr. Saidou Ouiminga Ministere de l'Environnement, des Eaux Fax: (291-1) 18 14 15 Directeur General de l'Energie et Forets Ministere de l'Energie et des Mines BP 830, Bangui 01 BP 1594 Tel: (236)61 02 16 GABON Ouagadougou Fax: (236) 61 57 41 Tel: (226) 34 04 37/8 _ Mr. Jean Mboulou Fax: (226) 31 84 30 * Directeur General Adjoint Ministere des Eaux et Forats BP 2275, Libreville Tel: (241) 72 10 04 Fax: (241) 77 29 94 89 African Forest Policy Forum-Proceedings Mr. P. A. Diro Mr. Adrien Noungou Forest Manager Mr. George 0. Ochieng Chef de Service de l'Ammenagement de PanAfrican Paper Mills (EA) Ltd Deputy Director la Faune P.O. Box 680 Department of Forestry Ministere des Eaux et Forets Eldoret Kenya Forestry Master Plan BP 1128, Libreville Tel: KAPTAGAT 20 & 21 P.O. Box 39282 Tel: (241) 76 14 44 Nairobi Mr. Gideon N. Gathaare Tel: (254-2) 76 03 31 Forest Conservation Coordinator Fax: (254-2) 76 00 34 GHANA Kenya Wildlife Service P.O. Box 40241 Mr. J.F. Moses Onim Mr. Imad C. Berbari Nairobi Senior Associate and Project Coordinator Managing Director Tel: (254-2) 60 93 55 in Kenya Specialized Timber Products Ltd Winrock Intemational P.O. Box 8634, Kumasi Mr. George K. Githae P.O. Box 1244 Tel: (233-51) 27 690 Deputy Pernanent Secretary Kisumu Fax: (233 51) 24 315 Ministry of Environment and Natural Tel: (254-35) 41 440 Resources Fax: (254-35) 43 063 Mr. E. Kofi Smith P.O. Box 30126 Technical Director Nairobi Mr. J.H.G. Waithaka Forest Resource Management Project Tel: (254-2) 21 37 02 Kenya Nut Company Ltd. Forestry Planning Project Esso Plaza, Muthaiga Road Ministry of Lands and Natural Resources Mr. Ian Gordon P.O. Box 52727 P.O. Box M 212 Project Manager Nairobi Ministry Post Office Kipepeo Project Tel: (254-2) 76 25 54 Accra East Africa Natural History Society Fax: (254-2) 76 24 34 Tel: (233-21) 66 54 21 ext. 2001 P.O. Box 57, Kilifi Tel/Fax: (254-125) 22 078 MADAGASCAR GUINEA Mr. Bernard N. Kigomo Deputy Director for Research Mr. R. Andriamahaly* Mr. Thierno Oumar Diallo Kenya Forestry Research Institute Directeur Suivi, Evaluation et Ingenieur des Eaux et Forets P.O. Box 20412 Planification Administration et Contr6le des Grands Nairobi Association Nationale pour la Gestion Projets Tel: (254-154) 32 892 des Aires Protegees (ANGAP) BP 2069 Fax: (254-154) 32 844 B.P. 1424 Conakry Antananarivo Tel: (224) 41 53 00 Dr. J.L. Kiyiapi Tel: (261-2) 30 518 Fax: (224) 41 16 18 Dept. of Forestry at Moi University P.O. Box 1125 Mr. J.P. Randrianantoandro** Eldoret Chef de Volet de la Politique Forestiare KENYA Tel: (254-321) 62 895/63 206 Direction des Eaux et Forets Fax: (254-321) 43 047/63 206 Ministere d'Etat de l'Agriculture et le Mr. Washington Ayiemba Developpement Rural Research Scientist Mr. Quentin Luke** B.P. 243 Kipepeo Project Project Executant Antananarvo East Africa Natural History Society Coastal Forest Conservation Unit Tel: (261-2) 40 610/41 006 P.O. Box 57, Kilifi P.O. Box 24133 Tel: (254-125) 32 065 Nairobi Fax: (254-125) 22 078 Tel: (254-2) 88 44 75 MALAWI Fax: (254-2) 88 27 28 Ms. Sabine Baer** e-mail: Bonham.Luke@tt.gn.apc.org Mr. Robert Kafakoma Research Biologist Project Coordinator Banburi Baobab Farm Ms. Els Martens Evangelical Lutheran Development P.O. Box 81995 Mangroves Advisor Program (ELDP) Mombasa Kenya Wildlife Service P.O. Box 2467 Tel: (254-11) 48 61 55/48 57 29 P.O. Box 82144, Mombasa Blantyre Fax: (254-11) 48 61 55/48 51 51 Tel: (254-11) 31 27 44/5 Tel: (265) 63 22 97/63 23 09 Fax: (254-11) 22 77 74 Fax: (265) 63 23 87 90 List of Participants Mr. Paulos Mwale Mr. Pierre Montagne SWAZILAND Project Manager Conseiller Technique Wood Energy Component of the WB Projet Energie 11, Volet Offre Mr. Peter R.A. Whitfield** Energy I Project BP 12-860, Niamey Forest Manager Forestry Departmnent Tel: (227) 72 21 95 Usutu Pulp Co. Ltd. P.O. Box 30048, Lilongwe 3 Fax: (227) 73 47 09 P.O. Box 327 Tel: (265) 78 11 60 Mhlambanyatsi Fax: (265) 78 42 68 Tel: (268) 74 316/26 010 NIGERIA Fax: (268) 26 021 Mr. L.A. Sitaubi Chief Forestry Research Officer Mr. Etim B.O. Amika** Forestry Research Institute of Malawi Director of Forestry TANZANIA P.O. Box 270, Zomba Cross River State Forestry Department Tel: (265) 52 28 66 Calabar Mr. Othmar Haule Fax: (265) 52 25 48 PMB 1009 Duru-Haitemba Project Officer Cross River State Babati District Council P.O. Box 400 MALI Babati SENEGAL Tel/Fax: (255-57) 8872 Mr. Mamadou Haidara Chef du Bureau Technique Mr. Matar Cisse Dr. Said Iddi PGRN Chef de Division Amenagernent et Director BP 100, Bamako Production Forestiers Forestry and Beekeeping Department Tel: (223) 22 36 03/22 80 68 Direction des Eaux et Forets Ministry of Natural Resources and Fax: (223) 22 73 82 Ministere de l'Environnement et de la Tourism Protection de la Nature P.O. Box 426 Mr. Adikarim Toure Dakar BP 1831 Dar Es-Salaain Ingenieur des Eaux et Forets Tel: (221) 32 06 28 Tel: (255-51) 30 091 Direction Nationale des Ressources Fax: (221) 32 04 26 Fax: (255-51) 23 230 Forestieres Ministere du Developpement Rural et de Mr. Edward Massawe l'Environnement SIERRA LEONE Mgori Forest Liaison Officer BP 275, Bamako Singida District Executive Director Tel: (223) 22 58 50/22 59 73 Mr. P. D. Palmer"* P.O. Box 69 Fax: (223) 22 11 34 Chief Conservator of Forests Singida Ministry of Agriculture and Natural TeUFax: (255-606) 2574 Resources MAURITIUS Youyi Building Mr. Richard Minja Freetown Resident Coordinator Mr. Yousoof Mungroo Tel: (232-22) 22 34 45 Catchment Management Plan Director Fax: (232-22) 24 21 28 P.O. Box 1191 National Parks and Conservation Service Iringa Ministry of Agriculture and Natural Tel: (255-64) 2515/2205 Ressources SOUTH AFRICA Fax: (255-64) 2515 Reduit Tel: (230) 464 2993 Dr. A. Seydack** Dr. W.A. Rodgers Fax: (230) 465 1184 Senior Specialist Chief Technical Advisor Department of Water Affairs and Forestry Institutional Support for Biodiversity PB X12 Knysna 6570 Protection in East Africa NIGER Tel: (27445) 82 54 66 UNDP/FAO/GEF Biodiversity Project Fax: (27445) 82 54 61 P.O. Box 2, Dar Es-Salaam Mr. Soumalia Dan Baria Tel: (255-51) 15 0007 Directeur du Projet Energie II Fax: (255-51) 15 00 88 Volet Offre e-mail: fao-tza@field.fao.org Direction de l'Environnement BP 12-860, Niamey Tel: (227) 72 27 92/72 21 95 Fax: (227) 73 47 09 91 African Forest Policy Forum-Proceedings Dr. Liz Wily FOREST ACTION NETWORK International Development Consultant on ZAMBIA Forest Management Mr. Dominic Walubengo Orgut Consulting for SIDA Mr. Jones S. Akapelwa Director P.O. Box 68228 Chief Conservator of Forests Forest Action Network Nairobi Forestry Department P.O. Box 21428 Tel: (254-2) 52 15 96 Ministry of Environment and Natural Nairobi Fax: (254-2) 25 24 56 Resources KENYA e-mail: ewily@tt.sasaunep.no P.O. Box 70228, Ndola Tel/Fax: (254-2) 71 83 98 Tel: (260-2) 61 02 89/91; 61 46 63 e-mail: fan@arcc.or.ke Mr. R.P. Yonazi** Fax: (260-2) 61 38 88 Principal Forest Officer INTERNATIONAL CENTER FOR Forestry and Beekeeping Department Mr. Lovemdre S. Simwanda RESEARCH IN AGROFORESTRY Ministry of Tourism, Natural Resources Chairman (ICRAF) and Environment Environmental Conservation Association P.O. Box 426 of Zambia Dr. Roger Leakey Dar Es-Salaam P.O. Box 30395, Lusaka Senior Tree Breeding Specialist Tel: (255-51) 30 091 Tel: (260-1) 22 32 22/22 27 97 ICRAF Fax: (255-51) 11 30 82 Fax: (260-1) 22 27 36 Nairobi KENYA Tel: (254-2) 52 14 50 UGANDA ZIMBABWE Fax: (254-2) 52 10 01 e-mail: r.leakeygcgnet.com Dr. Rossellyn Wingard Aluma Mr. T.N. Maveneke Director Director INTERAFRICAN FOREST Forestry Research Institute CAMPFIRE Association INDUSTRIES ASSOCIATION (IFIA) National Agricultural Research P.O. Box 661, Harare Organization Tel: (263-4) 74 71 52 Mr. Jean-Jacques Landrot P.O. Box 1752, Kampala Fax: (263-4) 79 51 50 Secretaire General Tel: (256-41) 25 51 63-5/24 41 40 IFIA Fax: (256-41) 25 51 65/23 42 52 Mr. C. Phiri 6 Avenue St. Mand6 e-mail: fori@muklagn.apc.org Project Coordinator 75012 Paris Forestry Commission FRANCE Mr. Peter McLinton P.O. Box HG 139, Harare Tel: (33-1) 43 42 42 00 CARA Coordinated Development Tel: (2634) 49 84 36/9; 49 84 30 Fax: (33-1) 43 42 55 22 Plot. no. 596/Block 254 Fax: (2634) 49 70 66 Acacia Road, Kansanga TIED P.O. Box 22686, Kampala Tel/Fax: (256-41)26 83 00 DANIDA Mr. Oliver Dubois e-mail: Kilo~starcom.co.ug Research Associate Mr. Jens Aare Olsen IIED Mr. Gershom Onyango Programme Coordinator 3 Endsleigh Street Assistant Commissioner for Forestry DANIDA London WCIH ODD Forest Department National Tree Seed Center, UK Ministry of Natural Ressources P.O. Box 373,Morogoro Tel: (44-171) 388 2117 P.O. Box 7124, Kampala TANZANIA Fax: (44-171) 388 2826 Tel: (256-41) 25 17 76 Tel: (255-56) 3192 e-mail: iiedforestryggn.apc.org Fax: (25641) 25 19 18 Fax: (255-56) 3275 IUCN Mr. Henrik Hvidberg-Hansen ZAIRE Forestry Advisor Mr. Guido Broeckhoven DANIDA Forest Officer Dr. Mujika Kankolongo** Ministry of Foreign Affairs IUCN Regional Office for Central Africa National Environment Action Plan Asiatisk Plads 2, P.O. Box 5506 Ministry of the Environment Copenhagen Yaounde Kinshasa DENMARK CAMEROON Fax (c/o FAO Office): (243-88) 43 353 Tel: (45-33) 92 00 00 Tel/Fax: (237) 20 88 88 Fax: (45-33) 92 07 90 email: rocnWhq.iucn.org 92 List of Participants Mr. Harry van der Linde Global Network Coordinator Mr. Simon Rietbergen Sustainable Use Initiative Forestry Specialist Mr. Bai-Mass Taal IUCN The World Bank, N.W. Senior Program Officer 1400 16th Street, N.W. 1818 H Street Forests and Other Ecosystems Washington DC 20036 Washington DC 20443 UNEP USA USA P.O. Box 30552 Tel: (202) 797 5454 Tel: (41-22) 999 0258 Nairobi Fax: (202) 797 5461 Fax: (41-22) 999 0025 KENYA e-mail: sprWhq.iucn.org Tel: (254-2) 62 32 38 WINROCK INTERNATIONAL Fax: (254-2) 62 42 60 Mr. Paul Ryan e-mail: bai-mass.taal@unep.org Ms. Mary K. Mackey Forestry Specialist Program Associate The World Bank Mr. Jinhua Zhang Forestry and Natural Ressources P.O. Box 30577 Program Officer Management Nairobi Biodiversity Unit Winrock International KENYA UNEP 38 Winrock Drive Tel: (254-2) 71 41 41 P.O. Box 30552 Morrilton, AR 72110 Fax: (254-2) 72 05 25 Nairobi USA e-mail: pryan@worldbank.org KENYA Tel: (501) 727 5435 Tel: (254-2) 62 38 32 Fax: (501) 727 5417 WWF Fax: (254-2) 62 42 60 e-mail: mkmrwinrock.org e-mail: jinhuazhang@unep.org Mr. Gezahegn Negussie WORLD BANK East Africa Regional Program Office USDA WWF Ms. Jumana Farah P.O. Box 62440 Mr. Mark A. Reimers Consultant/Forum Organizer Nairobi Deputy Chief The World Bank KENYA Programs and Legislation 1818 H Street, N.W. Tel: (254-2) 33 29 63/33 28 33 USDA Forest Service Washington DC 20443 Fax: (254-2) 33 28 78 P.O. Box 96090 USA Washington, DC 20090 Tel: (202) 473 4119 UNEP USA Fax: (202) 473 8185 Tel: (202) 205 1663 e-mail: jfarahgworldbank.org Mr. James Kamara Fax: (202) 205 0936 Programmne Officer Mr. Vicente Ferrer Regional Office for Africa Independent Consultants Principal Economist UNEP The World Bank P.O. Box 30552 Dr. B. Martin 1818 H Street, N.W. Nairobi Expert Forestier Consultant Washington DC 20443 KENYA 77 Chemin d'Amance USA Tel: (254-2) 62 42 88 54130 Dommartemont Tel: (202) 477 1234 Fax: (254-2) 62 39 28 FRANCE Fax: (202) 473 5147 Tel: (33-1) 83 20 46 10 e-mail: vferrer@worldbank.org Mr. S. Reuben Shanthikumar Fax: (33-1) 83 20 17 67 SPO/Consultant Ms. Agi Kiss UNEP/GEF Senior Environmental Specialist P.O. Box 30552 The World Bank Nairobi P.O. Box 30577 KENYA Nairobi Tel: (254-2) 62 42 72 KENYA Fax: (254-2) 52 01 85 Tel: (254-2) 71 41 41 Fax: (254-2) 72 05 25 e-mail: akiss@worldbank.org 93 African Forest Policy Forum-Proceedings 94 IBRD 29053 230e 30 -20, 20~ &~~~~tftlrA,N' AFARANIFRIC # .- \ I-, ' , ' . f " * AFR UE,$OUDANO- RE e . E W 4E---.FSE| , SAHELIENNE @ A791dNrlC OCEAN f , . -t, t ---NDIN OCEA ~~~~~~~~~~~~~~~~- (OCFAN AILNDIQEN) - Ll SUB-SAHARAN AFRICA 10 OCA NDE) MAJOR AGROCLIM/ATIC AND FOREST ZONES 10,~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~2 AGROCLIMA'IQUES ET TROP STfCAL E S f l | l | 4 30H FRONTItRES DNTE5 PRNATIQNCIPALEES RfGIO I E ; , JF A _AN TIC OCEA N Ae FOREST e W- t _~~~~~~~~~~~~~~~~~~~~~~~~~~,o .,o i FORET oT.,Oo/At SEPE,oET o /f Th Wo SUB-SAHAR N AFRICDUOUS A e M n n o f I AFRIQUE ORUBSAHAFRIESTNN- MAJORPAGRCLMAtI D tA D FORES E f - 1 PINCENAPQALE ZOUNDRES - AGRO OIMTl9ES NETFRESTlNtRES B-- 0 500 1000 1500 MALOMETERS0ALCMESRES keTtlg Moa oylekynmnyeode.m ornOc ploeeF I II oo o nft ieo o uln , b nmntn tIh otiSrnlo 0 500 1000 MUX/MM4E5 5VP :w fle pb Soeoeo Jepiqeld epe Greope d to 200 100 00 100 2On 40 5006,0 SEPTEMBER 1997/SEPTEM8RE 1997 For additional copies of the African Forest Policy Proceedings, please contact: Africa Region Environment Group X ,J,U The World Bank 1818 H Street, N.W. Washington, D.C. 20433 U.S.A. Telephone: (202) 473-9433 Facsimile: (202) 473-8185