The National Forestry Programme

[see also the Forest Policy]

Table of Contents

1. BACKGROUND AND INTRODUCTION

1.1 Purpose of the National Forestry Programme

1.2 Justification

1.3 The state of the forest sector

1.4 Vision of the National Forestry Programme

1.5 Mission statement and mandate

1.6 National Forestry Programme objectives

1.7 National Forestry Programme principles

1.8 Development of the National Forestry Programme

1.9 Structure of the National Forestry Programme

1.9.1 Organisational structure of the National Forestry Programme

1.9.2 Criteria to determine the priority of the Actions of the Programme

2. NATURAL FORESTS AND WOODLANDS

2.1 Conservation of the biodiversity of natural forest resources

2.1.1 Summary of key issues

2.1.2 Strategy to establish conservation of the biodiversity of natural forest resources

2.1.3 Priority action programme

2.2 Valuation and natural resource accounting of forests and forest products

2.2.1 Summary of key issues

2.2.2 Strategy to establish natural resource accounting and valuation of forest resources

2.2.3 Priority action programme

2.3 Natural forests and the provision of energy

2.3.1 Summary of key issues

2.3.2 Strategy to establish sustainable fuelwood and energy production from natural forests

2.3.3 Priority action programme

2.4 Sustainable commercial exploitation of natural forests and woodlands

2.4.1 Summary of key issues

2.4.2 Strategy to develop commercial exploitation of natural forests and woodlands

2.4.3 Priority action programme

2.5 Sustainable management of natural forests and woodlands

2.5.1 Summary of key issues

2.5.2 Strategy to establish sustainable management of natural forest

2.5.3 Priority action programme

3. COMMUNITY FORESTRY

3.1 Community-based forest management

3.1.1 Summary of key issues

3.1.2 Strategy to establish community-based forest management

3.1.3 Priority action programme

3.2 Community rights and ownership of forest resources

3.2.1 Summary of key issues

3.2.2 Strategy to clarify and define community rights and ownership of forest resources

3.2.3 Priority action programme

3.3 Communal applications of forestry and agro-forestry

3.3.1 Summary of key issues

3.3.2 Strategy to enhance community applications of forestry and agro-forestry

3.3.3 Priority action programme

4. URBAN FORESTRY

4.1 Planning of urban and peri-urban forestry

4.1.1 Summary of key issues

4.1.2 Strategy to establish sustainable integrated urban and peri-urban forestry planning

4.1.3 Priority action programme

4.2 Management of urban and peri-urban forestry

4.2.1 Summary of key issues

4.2.2 Strategy to establish adequate urban and peri-urban forest management

4.2.3 Priority action programme

5. INDUSTRIAL FORESTRY

5.1 Sustainable management of commercial plantations

5.1.1 Summary of key issues

5.1.2 Strategy to establish sustainable management of commercial plantations

5.1.3 Priority action programme

5.2 Outgrower schemes and other activities of national and community interest

5.2.1 Summary of key issues

5.2.2 Strategy to enhance outgrower schemes and other beneficiary plantation schedules

5.2.3 Priority action programme

5.3 Expansion of forest plantations and promotion of value adding industries

5.3.1 Summary of key issues

5.3.2 Strategy to expand commercial forest plantations and promote value adding industries

5.3.3 Priority action programme

6. INFORMATION AND DATA MANAGEMENT

6.1 Forest resource assessment

6.2 Forestry data systems and national natural resource databases

6.3 Priority action programme

7. RESEARCH

7.1 Current status of forestry research

7.1.1 General situation

7.1.2 Research needs identified in the National Forestry Research Plan

7.2 Forestry research priorities

7.2.1 Current requirements and feasibility for forestry research

7.2.2 Conclusions and institutional research arrangements

7.2.3 Priority action programme

8. HUMAN RESOURCE DEVELOPMENT AND EDUCATION

8.1 Human resource development and employment

8.1.1 General status of human resources development in forestry

8.1.2 Employment opportunities and matching human resource development

8.2 Training and education in forestry

8.2.1 Training in forestry

8.2.2 Formal education in forestry

8.3 Human resource development plan for the proposed Department of Forestry

9. INSTITUTIONAL FRAMEWORK AND STAFF REQUIREMENTS

9.1 Justification and Objectives

9.1.1 Justification

9.1.2 Objectives

9.2 General organisation of the proposed Department of Forestry

9.3 Management requirements of the Department of Forestry

9.3.1 Forest Advisory Board

9.3.2 Departmental management

9.4 Requirements of the Forestry Technical Services Division

9.4.1 Management of the Forestry Technical Services Division

9.4.2 Forest Policy, Planning and Information Section

9.4.3 National Tree Seed and Research Centre

9.4.4 Silviculture and Forest Management Section

9.4.5 National Herbarium Section

9.5 Requirements of the Forestry Extension Services Division

9.5.1 Management of the Forestry Extension Services Division

9.5.2 Regional Forest Extension Services Co-ordinating Offices

9.5.3 Subdivision of the Regional Forest Extension Services Section

9.6 Staff Categories and education levels with the Department of Forestry

9.7 Proposed institutional framework

10. IMMEDIATE ACTION PROGRAMME

10.1 Selection of the Immediate Action Programme

10.2 The Immediate Action Programmes

10.2.1 Programme 1: Sustainable management of natural forests and woodlands

10.2.2 Programme 2: Development of woodlots, wattle forest and outgrower schemes

10.2.3 Programme 3: Commercial exploitation of natural forests and woodlands

10.2.4 Programme 4: Research and promotion of agro-forestry

10.2.5 Programme 5: Development of urban and peri-urban forestry

10.2.6 Programme 6: Sustainable use of biodiversity resources and alien species control

11. MONITORING AND EVALUATING THE NATIONAL FORESTRY PROGRAMME

TABLES

Table 7-1 Research activities as incorporated in the National Forestry Programme

Table 9-1 Proposed structure of Regional Forestry Extension Services

Table 9-2 Staff categories and required education levels of proposed Department of Forestry

FIGURES

ACRONYMS

[BACKGROUND AND INTRODUCTION | NATURAL FORESTS AND WOODLANDS | COMMUNITY FORESTRY | URBAN FORESTRY | INDUSTRIAL FORESTRY | INFORMATION AND DATA MANAGEMENT | RESEARCH | HUMAN RESOURCE DEVELOPMENT AND EDUCATION | INSTITUTIONAL FRAMEWORK AND STAFF REQUIREMENTS | IMMEDIATE ACTION PROGRAMME | MONITORING AND EVALUATING THE NATIONAL FORESTRY PROGRAMME]

1 BACKGROUND AND INTRODUCTION

1.1 Purpose of the National Forestry Programme

The issues and policy statements defined in the National Forest Policy indicate a need for a National Forestry Programme. The main purpose of the National Forestry Programme is to identify the priority problems, the corresponding plans for action and the projected timing of starting and duration. The National Forestry Programme must include the following functions:

• Define a Government strategy to implement the National Forest Policy.
• Reflect the views of the common vision developed by Government and all stakeholders.
• Indicate how the objectives of the National Forest Policy are to be met.
• Provide strategic direction to all stakeholders of forestry and related institutions.
• Provide guidance to all users of forests with regard to management.
• Show flexibility in the design in order to absorb new views and solutions.

The formulation of the action plans of the National Forestry Programme necessitates the identification of institutions to manage the implementation. The Programme needs to evaluate the functions and services required from the Ministry responsible for forestry and other institutions in order to determine the necessary institutional changes.

1.2 Justification

The justification for the National Forestry Programme in Swaziland is the need to address serious problems of deforestation and degradation of the indigenous forests and woodlands as well as other constraints that exist in the development of industrial, community and urban forestry. The general recognition of the importance and value of forestry and utilisation of forest and woodland resources in Swaziland provides further support and justification.

World-wide, forestry has evolved tremendously over the past two decades and it will expand its functions even more in future. Traditionally, forestry has largely focused on industrial production, but today it is making a profound impact on social and environmental matters. The proper use and management of forest and woodland resources is essential to sustain the livelihoods of rural communities. Forestry today is an integral part of most land use systems, hence it must be considered in national planning as a priority in resource allocation. Cross-sectoral relations and integrated approach in forest planning are key elements in current holistic development strategies.

Also in Swaziland these development trends are clearly occurring, and they consequently enhance the importance and relevance of forestry, such as in the following areas of interest:

• The role of forests in sustaining rural livelihoods by providing a vast range of wood and non-timber products, such as firewood, medicinal plants, edible plants and fruits.
• The essential contribution to GDP and national accounts, not only from the formal plantation sector, but also the informal sector, such as from non-timber forest products.
• Relevance of forestry in biodiversity conservation, an obligation of Swaziland to the Convention on Biological Diversity (CBD).
• Utilisation of forestry in combating desertification, an obligation of Swaziland to the Convention to Combat Desertification (CCD).
• Importance of forestry in providing essential sources of energy.
• Relevance of forestry to tourism development, in particular eco-tourism.
• The role of urban and peri-urban forestry, to improve quality of life.
• Co-operation and partnership between the industrial forestry sector, Government, rural communities and other relevant stakeholders.

1.3 The state of the forest sector

Swaziland has relatively high rainfall patterns and warm temperatures, which offer favourable climatic conditions for the growth of trees, both natural and planted. The forest inventory of 1999 indicates that Swaziland has 45 percent coverage of forests and woodlands, of which natural forests cover 2.2 percent, natural woodlands 22.0 percent, natural bushlands 13.4 percent, wattle forests 1.4 percent and plantation forests 6.4 percent. Forestry is not the only land use of these forests and woodlands. Other land utilisation includes extraction of a variety of forest products, grazing, agro-forestry, nature protection and tourism.

The large tree coverage indicates the importance of the forest resources of the country. There are, however, significant differences in management and condition of the various forest categories. The overall state of the natural forest and woodland shows poor management and degradation, whereas the plantation forests are generally well managed and in good condition.

The current deforestation and degradation of the natural forest and woodland areas is caused by a combination of factors such as conversion of land to agriculture and other land uses, uncontrolled extraction of forest products from communal land, large livestock populations and expanding infrastructure development. Forest degradation is further compounded by a number of underlying socio-economic conditions, caused by increasing population pressure, that counteract rational utilisation of forest and woodlands. The associated problems include poverty, hunger, access to land, lack of jobs and income-generating opportunities as well as growing economic demands for forest goods and services.

Notwithstanding aspects of degradation, the indigenous forest and woodlands of Swaziland are a major national asset, which importance is not yet fully recognised. Knowledge and documentation about the present utilisation and potential value, e.g. for cultural and medicinal purposes, remain incomplete. There are clear indications that systematic undervaluing of natural forest products has contributed to over-exploitation of the forest resources. Natural resource accounting has only recently been initiated in Swaziland. Preliminary results of studies indicate that natural forest and woodlands make a very substantial addition to rural household expenditure as well as a significant contribution to GDP. If all direct and indirect user values are taken into account, the contribution to GDP reaches the same level as industrial forestry, or even higher.

Swaziland has a large industrial forestry sector, as climatic conditions, particularly in the Highveld, are very suitable for commercial growing of a specific variety of trees. Trees for commercial production were first planted in 1949, and areas under plantation forest have since steadily expanded. There are two industrial forestry categories of which the first is the large-scale commercial plantation forestry based on pine and eucalyptus production with a high level of management. The other is the wattle (Acacia mearnsii) forestry, which started mainly as a small-scale commercial activity. Management and distribution of wattle forests have deteriorated over the past years, which has resulted in uncontrolled wattle growth and encroachment of surrounding areas.

The commercial forestry and related processing industry form a very successful and important part of the economy of Swaziland, contributing approximately 15 percent to GDP, mainly through exports. The forestry sector, including the secondary processing sector, provides employment to approximately 8 000 people, which is 8 percent of total formal employment in Swaziland. Commercial forestry in Swaziland is entirely run by private companies, of which Sappi-Usutu, Mondi Forest and Shiselweni Forestry Company are the largest. These three companies, together with some smaller ones, manage a total area of about 130 000 ha covered by forest plantations. Of this total area, about 25 000 ha (twenty percent) is non-planted and used for infrastructure and for the protection of biodiversity and ecosystems.

The commercially grown plantation species are pine (predominantly Pinus patula, but also P. radiata, P. taeda and P. elliottii) and eucalyptus (mainly Eucalyptus salinga and E. grandis), covering about 80 and 20 percent respectively of the planted area. The productivity is relatively high, about 15-20 cubic metres/ha per annum for pine. Overall annual yield is approximately 1.2 million cubic metres of wood with a total value of about E650 million, which is largely exported as pulp, logs and timber.

1.4 Vision of the National Forestry Programme

In the past Government has tended to focus on industrial forest resources. However, since the adoption of the Principles for the Sustainable Management of Forests originating from the 1992 United Nations Conference on Environment and Development (UNCED), the world view of what constitutes forestry has been dramatically widened. This changed view is also reflected by the new approach of the Southern African Development Community (SADC) towards forestry development as expressed by the objectives, guiding principles and forest management arrangements of the SADC Forest Protocol.

All policies in Swaziland should be relevant to the Mission of the Government of the Kingdom of Swaziland. The current mission statement is "to provide a climate and infrastructure that will progressively maximise the quality and security of life of the people of Swaziland and make the best use of the country’s natural and human resources".

The vision of the National Forest Policy should also be contributory to the vision of the National Development Strategy (NDS). The NDS vision is that "by the year 2022, the Kingdom of Swaziland will be in the top 10% of the medium human development group of countries founded on sustainable economic development, social justice and political stability".

The draft National Land Policy (NLP) and the draft National Environmental Policy (NEP) are the links between the NDS and the National Forest Policy. The vision of the NLP is "to maximise benefits to the entire society from land on a sustainable basis". The main goal of the NEP is "to promote the enhancement, protection and conservation of the environment and the attainment of sustainable development in Swaziland".

Taking the above statements into account, the guiding vision for the National Forest Policy and the National Forestry Programme is:

To contribute to the sustainable development of the forest sector in Swaziland by providing adequate and integrated legal, technical and extension services to all stakeholders utilising trees as a means to improve livelihood, and by conserving forest resources and life supporting ecosystems.

1.5 Mission statement and mandate

The mission and mandate of the institution responsible for managing the implementation of the National Forestry Programme falls under the Ministry responsible for forestry. The mission statement of the envisaged Department responsible for forestry is as follows:

The mandate of the envisaged Department of Forestry is to provide the following functions:

• Take the overall lead in the maintenance of a coherent and contemporary forest policy and legal framework, with due consideration to the cross-sectoral nature of forestry.
• Maintain a comprehensive national forest inventory, with an adequate planning capability and technical forest management capacity.
• Extend government forest policies and disseminate technical knowledge on forest management, markets and organisational aspects to communities, individuals, companies and other institutions for the economic, social and environmental benefit of Swaziland.

1.6 National Forestry Programme objectives

The forest policy objectives defined in the National Forest Policy are equally applicable to the National Forestry Programme. The objectives identified not only cover the industrial forest sector but also the development of community and urban forestry as well as the sustainable management of natural forests and woodlands.

The policy objectives of the National Forestry Programme relate to objectives as defined for other national policies and strategies, in particular the National Development Strategy, the National Land Policy (draft), the National Environmental Policy (draft) and the National Biodiversity Strategy (draft).

• The joint policy objectives of the National Forestry Programme and National Forest Policy are the following:
• To improve the access to land for the utilisation and development of forest resources, and secure the tenure of forest and trees.
• To promote the rational and sustainable use of land, and achieve a sustainable balance between forestry and other uses of the land and water resources.
• To improve the forest productivity, and ensure sustainable supply of multiple forest products and services by maintaining the forest areas.
• To improve income and living conditions, and alleviate poverty.
• To conserve the biodiversity of the forest resources, encourage its sustainable use and ensure that benefits accrued are shared equitably.
• To promote the integration of forestry into urban development.
• To enhance the national capacity to manage and develop the forestry sector in collaboration with other stakeholders.

The objectives will be pursued through the sustainable management of four strategic forestry areas, namely natural forest and woodland management, community forestry, urban forestry and industrial forestry (chapters 2, 3, 4 and 5). These four action programme areas incorporate important trans-sectoral areas of interest, including biodiversity protection, tourism development, energy consumption and watershed management.

1.7 National Forestry Programme principles

The National Forest Policy is based upon a number of principles, which principles are also relevant to the National Forestry Programme. The following principles are distinguished:

• Forests should be treated as a national asset, forming part of the scarce land and water resources.
• Access to forest resources should be secured for basic needs and requirements.
• Land and tree tenure should be guaranteed by the Constitution.
• The forest resources should be efficiently managed for optimal sustainable economic production based on stakeholder responsibilities.
• The high capacity for soil and water conservation of forestland should be recognised, in particular the water retaining properties and the global water recycling potential.
• The forest and woodland reserves should be conserved and their biodiversity components sustained by maintaining ecosystem and habitat diversity and stability.
• The close link should be recognised between the biodiversity of the forest resources and the Swazi cultural and spiritual needs and rights.
• Community participation, accountability and transparency should be secured in the administration and management of forests and trees.
• Equitable sharing and distribution of benefits from forest resources should be recognised, including investment and employment opportunities.
• Gender should be applied in the management and utilisation of forest resources.

1.8 Development of the National Forestry Programme

Previous work on forest policy and legislation has culminated in the production of the final draft National Forest Policy and the draft Forest Legislation. The National Forestry Programme intends to depart from the National Forest Policy, Forest Legislation and other documents prepared during the earlier phases of the policy formulation process, including the Green Paper and submissions of Chiefs and communities and other stakeholders. The National Forestry Programme will translate the priorities and goals from the National Forest Policy into action programmes.

The National Forest Programme has been formulated through consultation with all stakeholders. In the first part of the procedure a drafting committee composed by carefully selected stakeholders has formulated a draft National Forestry Programme. During the formulation process other parties have been consulted when considered necessary. In the second part of the procedure the large stakeholder forum through national workshops and other avenues has decided the consensus of the programme. Although Government has still the prerogative on issues of national concern, the National Forestry Programme has been achieved trough a participatory process with balanced viewpoints.

1.9 Structure of the National Forestry Programme

The actual National Forestry Programme is described in the following chapters. Chapters 2 to 5 cover the four Main Forest Sectors, namely Natural Forest and Woodlands, Community Forestry, Urban Forestry, and Industrial Forestry. The actions from these four Chapters that are considered most urgent are summarised in the Immediate Action Programme in Chapter 10. Chapters 6 and 7 cover supporting parts of the National Forestry Programme, namely Information and Data Management and Research. Chapters 8, 9 and 11 cover important sections relevant to Human Resource Development and Education, Institutional Framework and Staff Requirement, and Monitoring and Evaluation.

1.9.1 Organisational structure of the National Forestry Programme

The structure and presentation of the actual National Forestry Programme is based on a number of practical decisions and approaches. All policy elements, which were considered sufficiently important to be included in the National Forest Policy, are consequently also incorporated in the National Forestry Programme.

Subdivision into strategic groupings

For each of the Main Forest Sectors subdivision into two or more strategic groups of action is made. These groups have a common strategic approach and consist of a number of related policy elements. Each strategic group has a standard description that consists of the following elements: Summary of Key Issues, Strategy and Priority Action Programme.

The Summary of Key Issues presents a condensed list of the issues most relevant to the particular group of action. The issues are described in more detail in the National Forest Policy. The outlined Strategy relates to a concise strategic approach required to complete the group of action. The combined total of Strategies aims to achieve the Development Objectives as described in Section 1.6.

Programme presentation in tables

The Priority Action Programme is presented in the form of a table with the following columns: Action (and Activities), Priority, Timing (subdivided into Start and Period), Responsibility and Capacity Building Requirements.

Each of the Actions is referenced with the original Policy Statement in the National Forest Policy. Every action should in the end lead to an output with a similar description. Each of the Actions is further described through a number of Activities. The Priority of each Action is determined following a set of criteria (see below).

Timing of actions and activities

The overall Timing of each Action is given as Short-term (3-5 years), Medium-term (5-10 years) and Long-term (10-20 years), indicating the total time span of the Action. The Timing of the Action is independent of the priority given. Timing is subdivided into start and period, with respectively an estimate of the anticipated year of starting the activity and an indication of the period of time required for completion of the activity. The minimal period given is one year, which does not necessarily mean that a full year is required, but only that the activity will be completed within one year, whether taking one or twelve months. If a period of 20 years is indicated, it means that the activity will be continuous.

Responsibility and capacity building requirements

The Responsibility lists the institutions, bodies or persons that are responsible for completion of the Action and Activity. The responsibility for each of the Activities should be defined as precisely as possible, e.g. naming a government institutions rather than just Government.

The Capacity Building Requirements relate to capacity or capability that is required for the completion of the Action. If the capacity at the present moment is not or not fully available, a semi-quantitative estimate is given of the overall lack of capacity. The classes distinguished have the following meaning: (x) lacking some capacity, and (xx) substantially lacking capacity. A brief description of the nature of the lack of capacity is given, e.g. funding, expertise, human resources.

1.9.2 Criteria to determine the priority of the Actions of the Programme

The general policy views as presented in this Chapter form the basis for the identification of criteria to determine the priority within the National Forestry Programme. From the respective missions, vision, policy objectives and policy principles the goals or criteria as listed below can be extracted. For each Action of the National Forestry Programme one can estimate whether the completion of that particular action will contribute or enhance one or more of these goals. These goals, which serve as criteria, are grouped into three categories. 

The Actions qualifying for the criteria of the first group - related to the people - should generally receive very high priority, the second group – related to the environment – high priority, and the third group – related to management – medium priority. However, exceptions from this rule are possible, as long there is justification for up- or downgrading.

• Goal & criteria directly related to the people of Swaziland
  • Improved quality and security of life, through job creation, income generation and poverty alleviation.
  • Improved access and tenure of land and trees through adequate regulations.
  • Equitable sharing of forests resources and benefits from forest products.
• Goals & criteria related to sustainable use of resources and protection of the environment
  • Sustainable use of natural and human resources.
  • Protection and conservation of the environment, in particular the biologic diversity and plant and animal genetic resources.
  • Rational use of land, with a focus on integration of forestry and rehabilitation of land.
• Goals & criteria related to management and economic performance
  • Economic growth and revenue generation.
  • Improved forest productivity and forest management capacity.
  • Support to other programmes of national importance.

2 NATURAL FORESTS AND WOODLANDS

The main concern with regard to the current status of natural forests and woodlands in Swaziland relates to lack of sustainable management and resulting degradation. The growing population is putting more pressure on the scarce indigenous forest resources and the use of forests by communities is no longer sustainable.

Plant resources are further diminished by uncontrolled commercial activities through sales and export. There is evidence that the forest resources of Swaziland are being depleted through export of specific forest products, notably medicinal plants. It is essential to address the underlying causes of deforestation and forest degradation and to formulate strategies to protect and conserve the forest resources.

Identification and study of the underlying causes of deforestation and forest degradation is a world-wide priority and its understanding forms an essential precondition for the introduction of sustainable forest management. Underlying causes include the following:

• Rapid population growth and pressure on land;
• Poverty and lack of alternative sources of livelihood;
• Inequities in land tenure, access and user rights;
• Lack of influence of stakeholders, in particular women;
• Substitution of forest and woodland by other systems of production and land use;
• Over-exploitation of communal forests and rangelands;
• Inappropriate and uncontrolled burning of forests and rangelands;
• Lack of value assigned to forests and forest products;
• Lack of recognition and use of traditional knowledge;
• Lack of capacity to manage forests;
• Illegal trade in forest products;
• Breakdown of traditional leadership and land disputes;
• Inappropriate government policies;
• Poor enforcement of laws and regulations.

There is no full understanding of the complex relationships between the underlying causes. Most of the causes refer to socio-economic conditions and attitudes, and they are related to one single major cause, namely the strong population growth, which takes place without corresponding increase of responsibility, adequate control, enforceable rules and regulations, and conservation of the forests and woodlands.

• The Natural Forests and Woodlands Action Programme is split into five strategies, each of them representing a group of actions.
• Conservation of the biodiversity of natural forest resources
• Valuation and natural resource accounting of forests and forest products
• Natural forests and the provision of energy
• Sustainable commercial exploitation of natural forests and woodlands
• Sustainable management of natural forests and woodlands

Conservation of biodiversity is considered the key factor in the sustainable management of the natural forests and woodlands. The majority of the issues and constraints as occurring in natural forest sub-sectors all relate to conservation of biodiversity, including forest resource accounting, valuation of non-timber forest products, commercial utilisation of forests, utilisation for cultural purposes, tourism development, and energy production. Introduction of sustainable management must incorporate community involvement and responsibility.

2.1 Conservation of the biodiversity of natural forest resources

A general principle of conservation is that the ecological structure, function and dynamics of forests, including water, soil, nutrient cycles, landforms, and micro-climate must be protected and maintained, or where degraded by past human activities, restored. The indigenous biological diversity of forests and woodlands must be protected and maintained at all spatial scales and through all time frames. Government has the overall responsibility for the conservation of the natural forest and woodlands, but adequate conservation and management can only be achieved with active participation of communities and other stakeholders.

2.1.1 Summary of key issues

• Conservation of genetic plant resources in Swaziland is presently insufficient.
• Indigenous ecological knowledge systems are not satisfactorily applied and protected.
• Spiritual rights and needs of traditional medical practitioners and other local people are not satisfactorily recognised.
• Public awareness and information of existing threats to biodiversity are insufficient.
• Current programmes to address the threats to biodiversity are insufficient
• The threat of invasive alien plant species in Swaziland is not adequately addressed.
• The current conservation areas of Swaziland are too small to fully maintain biodiversity and adequately cover all of the important habitats.
• The identification and selection process of protection-worthy areas (PWAs), including forest and flora reserves, is lacking standardised criteria and a comprehensive approach.
• The wetland areas within the forests and woodlands of Swaziland are not adequately protected and conserved.
• The hill and mountain forests and woodlands of Swaziland, including grasslands and unique riparian and riverine flora, are not adequately protected and conserved.

2.1.2 Strategy to establish conservation of the biodiversity of natural forest resources

To develop partnerships between all stakeholders for the conservation of plant genetic resources, the application of indigenous and other knowledge, the control of threats to biodiversity and the development of preservation areas representative of all habitats and ecologically important zones.

2.1.3 Priority action programme

2.2 Valuation and natural resource accounting of forests and forest products

Natural resources are by most people considered to be of limited value. The recently introduced natural resource accounting (NRA) in Swaziland is an important tool for determining the true value of the forest resource and improving its competitive position with respect to other land uses. Together with Environmental Impact Assessment (EIA) and resource rent introduction, NRA should be part of the routine planning exercise to protect forests from unwanted land conversion. Multiple use of forests and woodlands such as for conservation and tourism will add value and sustain management.

2.2.1 Summary of key issues

• The general lack of awareness of the actual value of natural resources is one of the major causes of inadequate management and degradation of forest and woodland resources.
• The value of non-timber forest products (NTFPs) is not fully recognised and established in the national accounts of Swaziland.
• The present species utilisation database of non-timber forest products is not available.

2.2.2 Strategy to establish natural resource accounting and valuation of forest resources

To develop improved understanding and awareness of the true value of the natural forests and woodlands through a full accounting of the forest resources and assessment of the overall value of timber and non-timber forest products based on comprehensive knowledge of the utilisation patterns and user categories.

2.2.3 Priority action programme

2.3 Natural forests and the provision of energy

Forests and woodlands play an essential role as a source of energy. About 70 percent of rural households in Swaziland rely on fuelwood, and it is expected that this percentage will remain high for some time. Although estimates of fuelwood consumption are not consistent, there are indications that local shortages exist, notably in the Upper Middleveld and parts of the Lower Middleveld and Lowveld, in particular around dense settlements and arable areas. Also in urban areas fuelwood is still an important source of energy, mainly derived from rural areas. In general, the situation warrants a better control and management of the fuelwood resources.

Natural forests and woodlands are not the only sources of fuelwood. An important part of the current fuelwood supply is harvested from private and communal wattle forests. Fuelwood from plantation forests and from urban and peri-urban forests form increasingly important sources of energy. Communal woodlots, which mainly consist of Eucalyptus species, currently contribute only minor amounts of fuelwood. To reduce the need for fuelwood, the draft National Energy Policy addresses issues of fuel efficiency and the promotion of other sources of affordable energy.

2.3.1 Summary of key issues

• There is general shortage of fuelwood, although estimates of fuelwood consumption are not consistent and vary widely.
• Differences in the rate of wood extraction between different regions and locations in Swaziland complicate introduction of a sustainable national fuelwood production.
• The imbalance between sources of fuelwood in Swaziland is enhancing local shortage and surplus.

2.3.2 Strategy to establish sustainable fuelwood and energy production from natural forests

To develop sustainable management strategies for fuelwood extraction from natural forests and woodlands based on assessment of extraction and regeneration in specific regional and local situations and to implement the strategy through partnerships with communities and other stakeholders in energy provision.

2.3.3 Priority action programme

2.4 Sustainable commercial exploitation of natural forests and woodlands

Commercial exploitation of the natural forests and woodland relates to extraction of forest products and commercial use for tourism, eco-tourism and conservation. Extraction of forest products is currently taking place in an unsustainable way, and without value adding processing of products. Commercial management for tourism, conservation and other purposes has traditionally been left to the private organisations and parastatals, such as the Swaziland National Trust Commission (SNTC) and the Big Game Parks. However, in some parts of the country there is scope for further tourism exploitation of forests and the natural beauty of the landscape.

Options for sustainable commercial exploitation need to be investigated with respect to markets and viability, notably in the fields of trade in timber and non-timber forest products (NTFPs) and in the development of small processing industries on the basis of forest products. Communities need to be advised on small industries and the possibilities of financial and technical assistance. The main advantages of creating such industries, e.g. bee keeping, food collection and woodcarving are increased employment through additional labour inputs and raised revenue through added value.

2.4.1 Summary of key issues

• Opportunities to improve rural community livelihoods by commercial and sustainable exploitation of forest resources are not sufficiently explored.
• Current trade in natural forest products is uncontrolled and not providing satisfactory benefits to communities.
• Communities are not making efficient and economic use of forest products by setting up small processing industries.
• The uncontrolled and unsustainable extraction of medicinal plants currently taking place in forests and woodlands has resulted in depletion or critical levels of certain species.
• The uncontrolled commercialisation of indigenous plant and tree species for the woodcraft market has led to over-exploitation and depletion of desirable plant species.
• There is an increasing depletion of certain tree and plant species that are indispensable in the Swazi culture and tradition.

2.4.2 Strategy to develop commercial exploitation of natural forests and woodlands

To develop sustainable commercial utilisation mechanisms in partnerships with all stakeholders for the benefit of the population and in particular the rural communities

2.4.3 Priority action programme

2.5 Sustainable management of natural forests and woodlands

Management of natural forests and woodlands remains the most important forestry issue in Swaziland that needs to be addressed. There is general agreement that the increasing degradation of the forest resources is caused by unsustainable exploitation of forest and woodlands, in particular the communal resources. The main causes are the lack of clear and comprehensive understanding of sustainable forest management, and the lack of the means to implement sustainable management.

The national criteria and indicators that have been defined and adopted by the Ministry responsible for forestry must be introduced to all stakeholders. Specific criteria and indicators for the sustainable management of the natural forests and woodland need to be completed and implemented. Introducing community-based management is a key element in the process, whereby communities have to be made aware of alternative uses of forest resources. Communities have to organise themselves in Natural Resources Management Committees, but need technical and financial support. Hence there is a need for collaborative or joint management, in which the roles of Government and NGOs have to be defined.

2.5.1 Summary of key issues

• The natural forests and woodlands of Swaziland are not managed in a sustainable way.
• There is lack of application of suitable measures to address the underlying causes of deforestation and forest degradation.
• There is an overall lack of control of fire in natural forests, woodlands and rangelands.
• Potentially attractive forest sites do not appeal to tourists as a result of forest degradation and lack of management.
• Many of the farms and ranches controlled by Government are presently under-utilised, in particular with respect to the value of their forest resources.
• Communities are not sufficiently involved in the management of conserved land.
• The present conservation management capacity in Swaziland is not considered sufficient to manage additional protected forest and flora reserves in the near future.

2.5.2 Strategy to establish sustainable management of natural forest

To establish sustainable natural forest management based on enforced national criteria and indicators and implemented through partnerships with all stakeholders, in particular communities organised in Natural Resources Management Committees.

2.5.3 Priority action programme

3 COMMUNITY FORESTRY

Well-developed community forestry may significantly contribute to improving the quality of rural life, through communal, group and individual participation in planning, implementation and management of social and economic forestry in the local environment. Community forestry relates to applications such as farm or homestead forestry, agro-forestry, woodlots, and planting and use of trees in conservation, rehabilitation or other rural schemes. Community forestry is also involved with the use and management of natural forests and woodlands (Chapter 2) and wattle forests. It has links with commercial forestry through outgrower schemes on communal land (Chapter 5) and with urban forestry as applied to households, schools and residential areas, in particular on peri-urban land (Chapter 4).

Community forestry in Swaziland is characterised by a complex setting in terms of land tenure, ownership and user rights, management responsibility and conflict of traditional and modern values. Such issues should be resolved in order to develop community forestry as a self-sustaining activity without reliance on external inputs. In particular ownership and user rights are issues that play an important role in development of sustainable management of natural forests and woodlands, wattle forests and woodlots. In order to develop all aspects of sustainable community forestry, there is an immediate requirement to provide specific services to communities, such as assistance in planning and selection of suitable tree species, provision of seedlings, and training in forest management.

The Community Forestry Action Programme is split into three strategies, each of them representing a group of actions:

3.1 Community-based forest management

The current lack of sustainable management of the natural forests and woodlands, but also of wattle forests and woodlots, is to a large extent caused by lack of community involvement. National criteria and indicators for sustainable forest management have been defined, but specific criteria and indicators for sustainable community forestry management have to be completed and implemented by all stakeholders. Introducing community-based management is a key element in the process, whereby communities have to be made aware of alternative uses of forest resources. Communities need to organise themselves in Natural Resources Management Committees, which should work in close co-operation with the existing community traditional structures.

3.1.1 Summary of key issues

• Community responsibility and technical knowledge of sustainable forest management is insufficient to properly manage communal indigenous forests and woodlands.
• Wattle on communal land is not used to its full potential as a major source of fuelwood, charcoal, poles and other products.
• Wattle has invaded ecosystems with a negative impact on the water balance and the biodiversity resources.
• Communities do generally not have the technical knowledge to manage woodlots.
• Current forestry support and extension services are insufficient to enhance community capabilities in the management of communal forests and woodlands.

3.1.2 Strategy to establish community-based forest management

To develop and increase local management of indigenous and exotic forest resources through supporting the organisation of communal management structures and providing services to the implementation of effective and sustainable natural resource management and monitoring.

3.1.3 Priority action programme

3.2 Community rights and ownership of forest resources

There is lack of clarity of ownership, tenure of trees and rights to use communal natural forests, wattle forest and woodlots, including arrangements concerning the distribution of benefits. The Natural Resources Management Committees should be empowered by the traditional authorities to negotiate forest management matters with all stakeholders, in order to establish rights and responsibilities, and formulate rules with respect to the use and management of communal forest resources. Regulations emanating from these negotiations should include detailed arrangements with regard to maintenance of the forest resources and the extraction of forest products.

3.2.1 Summary of key issues

• There is a lack of agreement and definition with respect to ownership and user rights of communal indigenous forests and woodlands.
• There is lack of clarity of user rights of uncontrolled wattle trees on communal land.
• There is lack of clarity of ownership and user rights of community owned woodlots, resulting in disagreements over benefits and revenue sharing.

3.2.2 Strategy to clarify and define community rights and ownership of forest resources

To remove obstacles related to the lack of clarity and agreement with respect to communal and individual tenure rights of land and trees and to develop clear mechanisms of ownership in order to enable communities establishing sustainable use and management of their forest resources.

3.2.3 Priority action programme

3.3 Communal applications of forestry and agro-forestry

Communal applications and use of trees and forestry may contribute to sustaining rural livelihoods through income generating activities. The main areas of interest are agro-forestry, participation in woodlots, application of trees in conservation and sustainable use of a variety of indigenous and exotic trees. Agro-forestry is not much practised as part of existing farming systems, notwithstanding the fact that climatic conditions in most of Swaziland are conducive to the growing of trees, both indigenous and exotic.

Agro-forestry refers to mixed land uses where the use of trees, crops and livestock are integrated. The use of trees in the mixed systems of agro-forestry provides better micro-climatic conditions for crop growth and supplements the soil with additional nutrients from leaves, roots and branches. Trees with palatable foliage may provide an additional source of fodder. Modern agro-forestry technology includes practices such as the planting of multipurpose trees in specific locations, mixed and hedgerow inter-cropping, live fences, which all aim at alleviating identified constraints such as soil degradation, soil fertility, fodder shortage and shortage of fuelwood and timber.

3.3.1 Summary of key issues

• Although there is a wide scope for application of agro-forestry in Swaziland, it is not much practised.
• Community knowledge of the application of suitable tree and shrub species in special circumstances and for specific purposes is insufficient.
• Communities do not effectively use trees in combination with other plant species in the protection and rehabilitation of land.
• Planning for woodlots is currently not part of integrated rural development planning and communities are not sufficiently involved.

3.3.2 Strategy to enhance community applications of forestry and agro-forestry

To provide efficient support to the community-based development of agro-forestry, woodlots and other applications of forestry to improve rural livelihoods and local conditions.

3.3.3 Priority action programme

4 URBAN FORESTRY

Urban forestry can provide a variety of economic, social and environmental benefits to all inhabitants. Economic and social benefits include home consumption and sale of a variety of wood and non-wood products such as timber, fuelwood, fruit and other edibles, but also employment opportunities, improved health and well being, amenity, shade, shelter and recreation. Environmental benefits include conservation of biodiversity and important habitats, improved micro-climate, noise reduction, better control of disposed wastewater and overall hydrological balance.

The importance of retaining green belts and open spaces as part of the urban and peri-urban environment is acknowledged in the Swaziland Environment Action Plan (SEAP). Forests are an important part of green belts, which improve the quality of life. Urban forestry improves degraded urban environments, through trees and plants in private gardens, parks and other public places, and conserves valuable natural forests and woodlands in the peri-urban zone.

The Urban Forestry Action Programme is split into two strategies, each of them representing a group of actions.

4.1 Planning of urban and peri-urban forestry

Lack of integrated urban forestry planning as part of holistic land use planning often results in conflicts of interest amongst stakeholders. It is essential that planning take place in an early stage of urban development, before irreversible changes in the forest coverage have occurred. All stakeholders should participate in the planning of urban forests and other green zones, including the urban and peri-urban dwellers, the urban local authorities (city councils and town boards), the peri-urban authorities – including traditional leaders –, the Government and non-governmental organisations.

4.1.1 Summary of key issues

• The present and potential benefits of the economic, social and environmental functions of urban forestry are not sufficiently recognised.
• The importance to declare unique natural habitats within the urban zone as protected areas is not satisfactorily reflected in current urban planning procedures.
• Coordinated planning for urban forestry in the context of integrated and holistic land use planning is needed to minimise conflict of interest amongst stakeholders.

4.1.2 Strategy to establish sustainable integrated urban and peri-urban forestry planning

To formulate integrated and holistic planning procedures for urban and peri-urban forestry and to implement plans for conserving unique habitats as green zones and providing important economic, social and environmental benefits to the urban and peri-urban population.

4.1.3 Priority action programme

4.2 Management of urban and peri-urban forestry

Lack of planning and different views on the management and control of urban and peri-urban open space and green areas has led to conflicts between interested parties. Government controls and manages most land within the urban boundaries and makes unilateral decisions with respect to planning, use and management. Local authorities manage urban areas, but are currently not empowered to plan and implement initiatives such as development of parks and urban forestry. Empowerment of peri-urban authorities through the Peri-urban Growth Policy is a prerequisite for sustainable forest planning in peri-urban areas (see Action 4.1.2)

4.2.1 Summary of key issues

• Conflicts in the development, utilisation and management of urban land are to a large extent caused by different economic and environmental interests.
• Participation of urban and peri-urban dwellers in the planning and management of urban and peri-urban trees, forests and other green areas is very low.
• The management capacity and capability to plan, manage and monitor urban forests and green areas is insufficient.

4.2.2 Strategy to establish adequate urban and peri-urban forest management

To develop adequate and participatory management structures and procedures for the development, maintenance and monitoring of urban and peri-urban forests and green zones.

4.2.3 Priority action programme

5 INDUSTRIAL FORESTRY

The industrial forest sector is an important economic asset to the national economy. The forest resource has to be managed on a sustainable basis, ensuring long-term viability. The industrial forest sector has also important multiple functions with respect to social services and environmental conservation. Future expansion of plantation forest is dependent on demand of forest products and changing patterns in world trade. The role of the state has to be defined with respect to regulations and incentives relevant to the development of the industrial forestry sector.

The Industrial Forestry Action Programme is split into the following strategies, each of them representing a group of actions:

5.1 Sustainable management of commercial plantations

Plantation forestry has an impact on the environment in general and on biodiversity in particular, with water use efficiency and soil degradation as key issues. Sustainable forest management needs to be applied at all levels of operations, by both large and small forest plantations. Forest companies need to comply with sets of regulations based on defined criteria and indicators for sustainable forest management.

5.1.1 Summary of key issues

• Nationally developed criteria and indicators for sustainable industrial forest management have not been completed nor implemented.
• Long-term economic plantation productivity needs continued and detailed monitoring.
• The risks and benefits associated with the use of genetically modified tree species need to be assessed.
• Plantation forests consume large amounts of water, which needs to be further researched.
• Certain industrial forestry activities have a negative impact on soil properties and may lead to irreversible soil degradation.
• Industrial forestry has in general a negative impact on biodiversity through replacing natural vegetation by mono-cultures.
• Wood processing industries discharge effluents which may lead to pollution.
• Overall commercial management of wattle forests is poor and production of timber and bark tannin is low.
• There is a need for a balanced land use strategy embracing plantation forestry.

5.1.2 Strategy to establish sustainable management of commercial plantations

To develop and apply measures and practices which enable establishment of economic, social and environmental sustainable forest management contributing to the economic and social well being of Swaziland.

5.1.3 Priority action programme

5.2 Outgrower schemes and other activities of national and community interest

The plantation forest companies have initiated important additional developments towards the multiple use of the plantation forests, including commercial, social and environmental activities. Of particular importance are the commercial outgrower schemes by which companies are enlarging their plantation scope by contracting rural timber outgrowers in nearby communities to grow timber on Swazi Nation Land (SNL). The efficiency and sustainability of the outgrower schemes has to be investigated and monitored, based on experience obtained from the ongoing activities.

Forestry companies enhance the social and economic livelihoods of neighbouring communities by providing fuelwood and giving access to plantations for the collection of forest products. The role of plantation forests in these and other developments, such as integrated watershed management, joint ventures and partnerships needs to be further investigated, promoted and established. Attention needs to be given to the impact of industrial forestry on the neighbouring people, in particular to ameliorate negative effects.

5.2.1 Summary of key issues

• Land suitability and environmental aspects are not satisfactorily covered in the planning of outgrower schemes.
• Traditional administration and rights with respect to the land and tree tenure are not properly incorporated in the selection of land for outgrower schemes.
• Relationships between forestry companies and communities are not always optimal.
• Not all forest companies have satisfactory programmes in place to provide neighbouring communities with plantation forest products.
• There is insufficient co-ordination between plantation forest companies and other watershed users on the multiple functions of the watershed.
• Increased supply from plantation forests and forest industries is needed to alleviate the growing demand for fuelwood and other energy sources.

5.2.2 Strategy to enhance outgrower schemes and other beneficiary plantation schedules

To establish favourable conditions for the creation of new opportunities for local participation in commercial wood production and for a more equitable communal and national sharing of benefits from forest plantation products.

5.2.3 Priority action programme

5.3 Expansion of forest plantations and promotion of value adding industries

The feasibility of expansion of forest plantations depends on factors such as the future demand for industrial forest products, including the domestic market, exports and international trade. Land for expansion of forest plantations is increasingly difficult to find in Swaziland. Commercial forestry is competing with other land uses, such as crop production, grazing and residential use. According to the National Development Strategy (NDS) new commercial forestry plantations should only be developed in those Highveld areas with sufficient rainfall and low potential for other agricultural use, taking care not to disturb ecological and population balance. Conversion of land to plantation forest is now subject to Environmental Impact Assessment (EIA) through the Regulations of the Swaziland Environment Authority Act.

The majority of commercial forest products are currently exported as unprocessed wood or semi-processed products, with relatively low added value, which constitutes a lost opportunity for Swaziland in terms of revenue generation, foreign exchange earnings and job creation. It is therefor important to offer adequate conditions and incentives to potential investors for the establishment of downstream forest products processing industries.

5.3.1 Summary of key issues

• International demand for wood products may favour the expansion of plantation forestry in Swaziland, but suitable land is not available for large-scale expansion.
• The majority of commercial forest products are currently exported as unprocessed wood or semi-processed products, with relatively low added value.
• Current fiscal practice indicates that Government is not generating sufficient revenue from certain forestry practices, and no revenue at all from others.

5.3.2 Strategy to expand commercial forest plantations and promote value adding industries

To undertake integrated land use planning to facilitate sustainable expansion of industrial forestry and to create enabling conditions for the establishment of new processing industries

5.3.3 Priority action programme

6 INFORMATION AND DATA MANAGEMENT

A large amount of information on forestry and other natural resources is available in Swaziland. However, much of the information is not readily accessible, due to the lack of integrated information systems. For further description of current data management reference is made the Forest Policy Green Paper and White Paper.

6.1 Forest resource assessment

A reliable estimate of the national forest resources is required as a basis for forest policy implementation. Forest resource assessment should follow a methodology that can be reliably repeated for monitoring the resources, in particular with respect to the different strata and their spatial distribution. Periodic forest resource assessments will detect changes in forest cover, species distribution, species succession, regeneration, age distribution, etc.

The two most recent forest resource assessments, conducted in 1990 and 1999, have provided inconclusive data on the status of the forest resources. Introduction of a reliable methodology, which can be repeated within a shorter time interval, should be considered to remedy this situation. It is recommended to base the overall framework for guiding this activity on the methodology developed for defining national criteria and indicators for sustainable forest management, following the principles of the Dry-zone Africa Process.

One of the objectives of this initiative is to gather country information on indicators and to monitor forest resources. The definition of criteria and indicators is a starting point for the improvement of the basis for the next forest resource assessment. The proper definition of many of the indicators would require the gathering of new and additional data, such as biodiversity indicators, conservation areas outside of protected areas, area lost annually containing endemic species and species indicators.

The primary responsibility for the Ministry responsible for forestry is to provide data on the extent, volume, growth rates and status of the forest resource. Forest Resource Assessments require substantial technical, financial and human resources, for which external funding are likely to be needed. The Ministry responsible for forestry has demonstrated its capacity to carry out inventories and is in a position to update data as an ongoing activity.

Modern techniques including remote sensing and Geographic Information Systems (GIS) should be used to monitor deforestation and afforestation. The vegetation classification can be further upgraded with 1:50,000 thematic maps, satellite imagery and the latest aerial photography. It is recommended to concentrate activities on the following three areas, namely (1) review of forest vegetation types and classification, (2) Continuous Forest Inventory (CFI) and (3) establishment of Permanent Sample Plots (PSPs).

With respect to classification, adoption of the FAO Vegetation Classification System should be considered as the basis for improving the vegetation classification system for Swaziland. Higher level definition should take into account the SADC vegetation classification scheme, which is currently being developed as part of the Regional Biodiversity Information System (RBIS). The already existing local systems should be appraised for the definition of the lower levels.

6.2 Forestry data systems and national natural resource databases

The forestry data that have been generated in recent years include essential statistical and spatial information on forest resources. All interested stakeholders should use the information in planning and management applications. The available data should be organised in appropriate data management systems and be managed by an information unit within the Ministry responsible for forestry.

Statistical and geo-referenced databases on land, environmental resources, and socio-economic conditions are a precondition for planning. Practical approaches and suitable frameworks need to be selected for integrated environmental management, in particular with respect to spatial distribution. Although there is database development, including Geographic Information Systems (GIS) in Swaziland, there is no formal overall national facility for information technology and spatial planning.

It is recommended to establish comprehensive natural resource databases and management information systems on a national basis, in collaboration with other government departments and stakeholders. The establishment of a national unit may take place in stages, with first priority the co-ordinate tabular and spatial databases with information on the environment. In a later stage a comprehensive national central unit should be developed, in order to cater for the needs of all stakeholders, including Government, NGOs and the private sector.

6.3 Priority action programme

7 RESEARCH

7.1 Current status of forestry research

7.1.1 General situation

The scope and corresponding institutional set-up of a forestry research programme in Swaziland has been an issue of debate for many years. The foundation for a national forestry research programme in Swaziland is weak as there is no technical or professional education in forestry offered in the country (see Chapter 8). As a result, little forestry related research is undertaken in Swaziland, as there is no national forest research institution, nor a university forestry department. The public forestry service has only a very limited research programme, due to lack of resources. Research by the commercial forestry sector is well developed and integrated in the overall production system. Industrial forestry research focuses on growth and yield, genetic improvement, soils and nutrition as well as entomology and pathology.

7.1.2 Research needs identified in the National Forestry Research Plan

A National Forestry Research Plan was defined by MOAC in 1992. The plan noted that formally adopted public forestry research objectives in Swaziland did not exist at that stage, and that co-operation in forestry research had not been established with other SADC countries or international institutions because of the lack of research programmes or institutions in Swaziland. The research needs as identified by the National Forestry Research Committee in 1992 fall into five priority programmes:

• Community woodlots
• Environmental degradation and soil rehabilitation
• Utilisation of wood and non-wood forest products
• Agro-forestry
• Management of indigenous and wattle forests.

The report does not provide a justification for the need for research in the five programmes and does also not provide sufficient details of the proposed research activities. The National Forestry Research Plan has estimated a large requirement of staff (42) to implement all the research programmes. Implementation of the full plan is not a realistic option at the present moment. The following comments are made on the five programmes.

Community woodlots

The broad objective is to provide a scientific, technical and socio-economic information base for woodlot development. However, it seems that what is needed is direct assessment and evaluation of available data, in particular from the SADC region, East Africa and Australia. One of the most important aspects is the selection of suitable species on the basis of the local condition in the various Agro-ecological Zones of Swaziland. This is basically a practical matching process of plant growth requirements and local climatic condition.

Degradation and soil rehabilitation

This programme should be executed in close co-operation with other stakeholders. The Research Plan indicates that various aspects of the programme to combat environmental degradation have to be further worked out.

Utilisation of wood and non-wood forest products

Five sub-programmes have been identified of which three should be undertaken jointly with other departments, namely (I) foliage and fruits as forage for livestock, (II) the biology of the Marula tree and fruits for livestock, and (III) the use of trees as food sources for bee keeping. Number (IV), namely utilisation for constructing, fencing and handicraft is not really a research area, but rather a matter of collecting and assessing available information, however including technology and marketing research. Number (V) programme relates to medicinal products, and calls for collaborative research with UNISWA, traditional medical practitioners and other stakeholders. All these sub-programmes contain important research areas, which can be further worked out and enhanced.

Agro-forestry

The proposal basically aims at the development of agro-forestry in general. Although this seems primarily a matter of collecting and assessing available information, the plan also calls for research of local traditional agro-forestry practices and for assessment of relevant experiences in agro-forestry from other countries.

This particular agro-forestry research proposal is focused on forest inventory and species composition and related monitoring. Although the organisational aspects of the management are not specifically mentioned, there is certainly a need to address these in the research activities.

Almost all of the relevant elements from the National Forestry Research Plan are incorporated in the structure representing current requirements for forestry research (see next section).

7.2 Forestry research priorities

Recent consultations and investigations have revealed a need for forestry research, in particular with respect to priority areas such as community forestry, natural forest resource management, conservation forestry and the impact of forestry on the environment.

7.2.1 Current requirements and feasibility for forestry research

At the present moment, it is important to define the type of forestry research needed in Swaziland. The report on Human Resource Development required for the Forest Policy and Legislation development distinguishes four types of research, namely Basic Research, Applied Research, Development and Delivery. The report suggests where the focus of research in Swaziland should be, namely primarily on Development, and secondarily on Applied Research and Delivery. Basic Research is not recommended.

These recommendations indicate that the primary role of research should be directed towards assessing and evaluating of existing information, setting up and maintaining data management systems, with a secondary role for applied research in limited and selected areas. Research activities should be extended in the future when additional resources become available. Enlargement of the research programme will only be possible after having successfully completed the initial research operations and having implemented the results in development programmes.

Table 7-1 presents an overview of actions with related research activities as identified in the National Forestry Programme (Chapters 2 to 5). Most of the 8 research areas listed in the table also occur in the 1992 National Forestry Research Plan. The capacity analysis shows shortcomings in the available capacity of the research programmes, in particular where the capability is estimated as being low (3 out of 8 of the Action groupings). The groupings with an estimated low available capacity for research will consequently also have a low feasibility rating for implementation. The groupings with an estimated medium capability are interpreted in such way that it strongly indicates that the proposed Department of Forestry has sufficient capacity to initiate and implement most of that particular research activity. However, it is important that the research section of the proposed Department of Forestry seeks support from other national and international institutions. The three Action groupings with very high priority and medium current capability should be given highest priority in the research programme. For the same reasons these three groupings have been selected for the fourth Immediate Action Programme, as further described in Chapter 10.

Table 7-1: Research activities as incorporated in the National Forestry Programme

7.2.2 Conclusions and institutional research arrangements

Analysis of the current situation indicates that there is at the present moment not sufficient justification and political support for a large forestry research programme. However, several important research applications and developments would justify a modest research section within the proposed Department of Forestry. The research should focus on market driven developments and applied research in order to assist forestry staff in effective service and products delivery. Given the focus on research application, an efficient information and data management service within the proposed Department of Forestry is extremely important (see Chapter 6). Another essential element is an effective mechanism of exchange of research information with corresponding institutions in other countries.

The limited resource base necessitates that research be undertaken under a broader research programme through collaboration of the proposed Department of Forestry with other institutions such as the University of Swaziland, the Swaziland Foresters Association and the private sector. The research should be co-ordinated through the National Research Council. The Environment Management Bill 2001 calls for the establishment of a National Environment Fund to act as seed capital for environmental projects. This fund could amongst others be used to undertake conservation forestry research.

Research is also required for many other land uses in Swaziland, including agriculture, wildlife, water, land rehabilitation, etc. There is a need for an overall science and technology research institution as a long-term strategy to conduct co-ordinated natural resource research programmes. In this overall research framework a greater co-operation is required with international research institutions and donors.

7.2.3 Priority action programme

8 HUMAN RESOURCE DEVELOPMENT AND EDUCATION

8.1 Human resource development and employment

8.1.1 General status of human resources development in forestry

There is currently a wide variety in skills and employment conditions in the various sub-sectors, such as commercial large-scale industrial forestry, small-scale forestry activities and community forestry. The industrial forestry is the only sector where there is an adequate human resource development with a skilled labour force and competent training facilities. Apart from the industrial sector, the Government is the only institution where formally trained people in forestry are found. The University of Swaziland and a few NGOs have some people with expertise in forestry, which is limited and not comprehensive of all forest management aspects. In general, the overall human resource is not sufficient to cope with the multiple functions of forestry.

In the other sub-sectors there is a general lack of skills and experience to deal with forestry issues, in particular in community forestry and management of the natural forest resources. Without appropriate knowledge and skills it is unrealistic to expect Government, communities and NGOs to be able to manage the forest resources in a sustainable manner. Training and education are necessary to empower all stakeholders, which requirements should be determined and prioritised by Government through a participatory process.

8.1.2 Employment opportunities and matching human resource development

There are indications that many Swazis have aspirations to develop their skills and competence in managing trees and forests for their own and the Nation’s benefit. These interests by different groups of people include a wide range of options and applications. The aspirations include employment in the formal industrial forestry sector, developing small-scale commercial activities, setting up entrepreneurial activities in trade and transportation of wood products, involvement in conservation and tourism, etc. An important group is that of rural women trying to improve their social and economic conditions by making use of forest resources.

It is important to evaluate the different sub-sectors with respect to their development outlook and future manpower requirements. Sectors such as the forestry plantations may keep the same demand for unskilled labour, but may reduce the overall labour force due to further mechanisation of forestry activities such as harvesting and transportation. Sectors such as small-scale processing may have promising prospects, but be in need of capital inputs and skills. Trade in non-timber forest products needs education and guidance in the environmental aspects of the activity.

Human resource development appears to be the most crucial factor in several of the forestry sectors currently recognised as economically most promising or environmentally most vulnerable. The wide range of skills required for activities from wood production and processing to conservation of natural resources needs to be translated in educational and training programmes at various levels, taking into account future trends in forestry development and the impact of HIV/AIDS. Government, with other stakeholders, needs to establish a strategy for human resource development, with the aim that education and training programmes meet the need for specific skills in the various forestry sub-sectors.

8.2 Training and education in forestry

8.2.1 Training in forestry

There is currently inadequate training of rural communities in the sustainable utilisation and management of trees and forests. One of the reasons is the shortage of resources in the Ministry responsible for forestry and other relevant agencies, including NGOs, and another is the lack of comprehensive training materials. These issues need to be addressed in the overall strategy of human resource development. In this respect, the following recommendations are made:

• To strengthen both the formal and informal training institutions by making resources and training materials available.
• To encourage forestry and forestry related subject courses be included as part of the training programmes offered by local training institutions, in particular NGOs.
• To further enhance outreach programmes offered by industrial forestry companies, such as presently undertaken by e.g. Sappi-Usutu.
• To promote forestry training as part of the National Environmental Education Programme (NEEP) and other environmental education programmes.

8.2.2 Formal education in forestry

In the present situation local tertiary training institutions do not offer any forestry courses to enable students to enter the active industrial and community forestry sector. The setting-up and running of tertiary education courses is a very expensive undertaking. In view of the modest requirements, it does not appear advisable that the University of Swaziland (UNISWA) introduces forestry diploma and degree courses.

However, the Department of Agriculture of UNISWA has drafted a curriculum for a module in agro-forestry for diploma level (3rd year) students. The implementation of such a module should be encouraged, as the integration of trees in agriculture is considered very beneficial in Swaziland. The module still has to be implemented, as available hours in the students study programme are scarce.

Another initiative is the drafting of a curriculum leading to a Masters degree in Environmental Management at UNISWA. This study programme is expected to commence in 2003 and will incorporate components on forestry in addition to courses from biology and geography.

The national primary and secondary school curricula comprise only few components related to forestry. There is a need to reconsider the position of the forestry education and training in general, including the relevance of currently used training materials. Recommendations to improve the present situation include the following.

To encourage the University of Swaziland to introduce selected forestry subjects within current diploma and degree courses. In addition to the already mentioned initiatives, it is recommended to include courses in silviculture, forest management and forest ecology.

To establish formal links with training institutions outside Swaziland to facilitate human resources development for the forestry sector.

To establish a panel composed of relevant stakeholders including the Ministry responsible for forestry and the Ministry responsible for education to redesign forestry courses for primary and secondary schools.

To consider allowing credits for relevant subjects that can be taken by distance learning on the internet from accredited institutions.

8.3 Human resource development plan for the proposed Department of Forestry

As part of the overall assessment of the current Forestry Section, performance gaps have been identified. These gaps include capability gaps in specialised fields, which may be a total or only a partial lack of competence. Critical capacity building is required for carrying out the forest action plans, necessitating the preparation of human resources development and training plans.

The performance gaps identified relate in brief to the following functions and skills:

• Overall management and information management skills;
• Technical and extension services, in particular competence in tourism development, forest inventories, geographic information systems (GIS), agro-forestry, environmental impact assessment (EIA), wattle management;
• Technical management of the National Herbarium and the National Seed Centre.

Some of these gaps are currently in the process of being filled through ongoing training conducted as part of the Forest Policy and Legislation Project. This training, however, will not be sufficient to fill the gaps and hence capacity building will be required.

Recommendations on the human resource development plan for Forestry include elaboration of a plan for development and strengthening of the Forestry Extension Service as well as training curricula and other training details for the staff of the proposed Department of Forestry. The human resource development plan should find solutions to overcome general and specific problems and performance gaps. Training frameworks and identification of institutions, opportunities and recommendations regarding group training and individual staff members training are available but implementation of training programmes is subject to the available budget.

Human resource development and training will take place within the Institutional Framework as described in Chapter 9. Government will need to provide a budget for long term training to develop human resources for the proposed Department of Forestry in accordance with the personnel requirements described in Chapter 9 to fill the existing and envisaged gaps in professional expertise.

9 INSTITUTIONAL FRAMEWORK AND STAFF REQUIREMENTS

9.1 Justification and Objectives

9.1.1 Justification

The role of forestry has changed considerably during the last 10 or 20 years from the previous narrow view concerned with conventional industrial forestry only. Today it includes all the economic, social, environmental and cultural aspects of life embracing the natural and planted forests on communal owned land in rural, urban and peri-urban areas. Forestry plays an increasingly important role in sustaining the economy and livelihoods of communities.

Forestry provides a wide range of non-timber forest products that greatly contribute to food security, poverty alleviation, traditional health services, employment, income generation, etc. Forest products play an important role in Swazi culture and traditions. Urban and peri-urban forests and green areas are important for amenity and recreation of the population.

Forestry has a role in environmental protection, conservation and management, e.g. in combating desertification, controlling climate change and conserving biodiversity. Pristine natural forests and woodlands are often integral parts of eco-tourism ventures attracting tourists and providing income opportunities at a national and local basis. Furthermore it stabilises the natural resource base by sustaining production and supporting ecological systems (water and nutrient cycles, etc).

There is a need to strengthen and improve the capacity of the government Forestry Service to be able to fully manage and monitor the forests and other related natural resources, and to enhance the well being of the population of Swaziland. It is through a strengthened Forestry Service that the aspirations, goals and objectives of the National Forest Policy, Legislation and National Forestry Programme can be successfully implemented and enforced to contribute to the provision of the needs of the people of Swaziland.

9.1.2 Objectives

The primary mandate of the country’s Forestry Service is the sustainable use and management of the forests and woodlands of Swaziland. The objectives of an efficient and adequately equipped Department of Forestry are to contribute to:

• Improving the quality and security of life of the people of Swaziland through sustainable use of forests and forest products;
• Enhancing leadership role in policy and legislative guidance to sustain forest sector development;
• Improving data and forestry information for better planning and management of forest resources;
• Increasing knowledge of sustainable forestry practices through education, research and technology development.
• Conserving biodiversity conservation and developing watershed management, tourism, land rehabilitation and enhanced rational energy production;
• Co-ordinating partnerships with the industrial, community and urban forest sector;
• Improving national forest accounts through formal and informal forest sub-sectors;
• Improving urban and peri-urban environments and living conditions through conserving and managing urban forests and green zones.

9.2 General organisation of the proposed Department of Forestry

The functions required at the first and highest level of the Department of Forestry relate principally to management and advise to the Government. In addition, the Minister receives advice from the Forest Advisory Board. The proposed management of the Department of Forestry consists of the Director of Forestry and two Assistant Directors.

The nature of the forestry activities that are required for achieving the forestry objectives justify the separation of two major divisions at the second level, namely the Forestry Technical Services and the Forestry Extension Services. Assistant Directors head the Services and also form part of the overall Management of the Department to assist the Director of Forestry.

The wide range of forestry task requires subdivision of both the Technical and Extension Services Divisions, the former pertaining to technical functions and the latter to regional extension service. Four technical sections are distinguished at the third level within the Forest Technical Services. A Regional Forestry Officer heads the four regional co-ordinating offices of the Forest Extension Service. Each of the regions is subdivided into two sub-regions.

The requirements of the functions of each of these units are described in the following sections. The proposed organisation of the divisions, sections and units is presented in the comprehensive overview of the structure of the Department of Forestry in Figure 1.

9.3 Management requirements of the Department of Forestry

9.3.1 Forest Advisory Board

The primary function of the Forest Advisory Board is to advise the Minister responsible for forestry. The operational aspects of the Board are described in the draft Forest Act for Swaziland of 2002. The Act provides details on the constitution and composition of the Board, as well as on the conditions of appointment. The Board shall consist of a maximum of 20 members and a minimum of 13 members, which will be appointed by the Minister. The Board will comprise representatives with knowledge of forest and woodlands, representing Government, non-governmental organisations, industrial companies, Chiefs, and other relevant bodies or institutions. The Act also describes the meetings and reporting procedures of the Board. It is further stated that the Director of the Department of Forestry will serve as secretary to the Board. The core activities of the Board are summarised as follows:

 

Forest Advisory Board

Functions and Core Activities

Advise on all matters related to forests and sustainable forest management Give recommendations on disbursement of funds from the Swaziland Forest Fund

9.3.2 Departmental management

The required functions and core activities of the management of the Department of Forestry are described as follows. The Director of Forestry is responsible for the overall administration and management of the Department assisted by the Assistant Directors for Forestry Technical Services and Forestry Extension Services. The Department of Forestry is supported by an administration unit, which is seconded from the central ministerial administration management. Such administrative unit provides secretarial and logistic support.

 

Management of the Department of Forestry

Functions and Core Activities

Manage the Department of Forestry Implement and review of the National Forest Policy, the Forest Act and the National Forestry Programme Advise the Government in formulating policies relating to Sustainable Forest Management Advise and make recommendations on forestry to the Government. Liaise with other stakeholders that impact on the National Forest Policy and National Forestry Programme

Short function description of personnel

- Director of Forestry

9.4 Requirements of the Forestry Technical Services Division

The Forestry Technical Services Division is a very important part of the Department of Forestry, responsible for the development and implementation of all technical programmes. An efficient organisation of the division is to have a small unit forming the management of the division, and four sections representing the required technical expertise and capacity.

9.4.1 Management of the Forestry Technical Services Division

The required functions and core activities of the management of the Forestry Technical Services Division are described as follows. The Assistant Director Forestry Technical Services Division is responsible for the day-to-day operation of the division assisted and advised by the Senior Forestry Officers of the Technical Sections.

 

Forestry Technical Services Division (FTSD)

Functions and Core Activities

Management and supervision of the Forestry Technical Services Division Reporting to Director of activities from the Division Development of technical services strategies and approaches Review and update of forest policy and legislation Development of appropriate information and communication strategies Overall planning and monitoring of the technical services Supervision of forest inventories and data management Supervision and co-ordination of forestry research Supervision of National Tree Seed Centre and forest nurseries Supervision and co-ordination of silvicultural activities and forest management Supervision of National Herbarium and botanical gardens

Short function description of personnel

- Assistant Director Forestry Technical Services Division (FTSD)

9.4.2 Forest Policy, Planning and Information Section

The required functions and core activities of the Forest Policy, Planning and Information Section are described as follows:

9.4.3 National Tree Seed and Research Centre

The required functions and core activities of the National Tree Seed and Research Centre are described as follows:

9.4.4 Silviculture and Forest Management Section

The required functions and core activities of the Silviculture and Forest Management Section are described as follows:

9.4.5 National Herbarium Section

The required functions and core activities of the National Herbarium Section are described as follows:

9.5 Requirements of the Forestry Extension Services Division

The Forestry Extension Services Division is the second Division of the Department of Forestry, responsible for the development and implementation of all extension programmes. The most efficient organisation of the division is a small unit forming the management of the division, and four regional co-ordinating offices representing the required extension expertise and capacity.

9.5.1 Management of the Forestry Extension Services Division

The required functions and core activities of the management of the Forestry Extension Services Division are described as follows. The Assistant Director Forestry Extension Services Division is responsible for the day to day operation of the division assisted and advised by the Regional Forestry Officers.

 

Forestry Extension Services Division (FESD)

Functions and Core Activities

Management and supervision of the Forestry Extension Services Division Reporting to Director of activities from the Division Development of efficient and practical extension strategies and approaches Development of appropriate extension information and communication strategies Overall planning, implementation and monitoring of the extension programmes Co-ordination and allocation of manpower, funds, transport and seedlings Conducting needs assessment of farmers and communities Supervision of policy and legislation inspection

Short function description of personnel

- Assistant Director Forestry Extension Services Division (FESD)

9.5.2 Regional Forest Extension Services Coordinating Offices

The four regional coordinating offices cover the four administrative regions, namely Hhohho, Manzini, Shiselweni and Lubombo. The four regions are each subdivided into two sub-regional units with Senior Foresters posted in the eight sub-regional unit headquarters (see next section).

The required functions and core activities of the Regional Forest Extension Services co-ordinating offices are described as follows. All forestry extension officers need to have a wide range of expertise in forest management practices. However some specialisation related to the major forestry sections (natural forests, community, urban and industrial forestry) will be provided by the technical officers through training of forestry extension personnel. This will ensure delivery of the wide range of services required by communities. Additional specialist knowledge includes agro-forestry, planning, industrial applications and financing, user rights, planting and replanting.

9.5.3 Subdivision of the Regional Forest Extension Services Section

The regional co-ordinating headquarters cover the four administrative regions of Hhohho, Manzini, Shiselweni and Lubombo, each with a Regional Forest Officer in charge (Table 9-1). The four regions are subdivided into two sub-regional units with Senior Foresters posted in the unit headquarters of Motjane, Piggs Peak, Mankayane, Manzini, Hlathikulu, Nhlangano, Siphofaneni and Siteki, each with their own offices, transport and other logistics.

Table 9-1: Proposed structure of Regional Forestry Extension Services

Additional Foresters are posted as extension staff in the same sub-regional stations and a number of other field stations within these sub-units. Although the Foresters and Assistant Foresters of each sub-regional unit are not posted in the same station, they still work very much as a team in that particular sub-region. The posting of Senior Foresters and Foresters may coincide with the field posting of agricultural extension staff.

9.6 Staff Categories and education levels with the Department of Forestry

During recent consultations and discussions a staffing list of the proposed Department of Forestry has been defined. According to government regulations a rather formal relationship exists between educational background and entry levels. Table 9-2 presents the respective staff categories identified and also indicates where a person with a given educational level may expect to start in terms of work and salary grade. People can however progress within the structure after acquiring the appropriate academic qualification provided that (1) there is a vacancy, (2) the candidate meets the specific requirements for the job, (3) has the required work experience, and (4) has a satisfactory work performance evaluation in the present job.

Table 9-2: Staff categories and required education levels of proposed Department of Forestry

9.7 Proposed institutional framework

A new institutional framework for the proposed Department of Forestry is a logical next step to accommodate the staff requirements for the implementation of the National Forestry Programme. The organogram as presented in Figure 1 not only reflects the required staff as defined in this chapter, but also the most recent institutional review and the agreed staff categories (Table 9-2). The proposed number of Professional Staff is 24 persons and the number of Technical Staff is 34 persons.

Figure 1: Organogram of the proposed Department of Forestry

10 IMMEDIATE ACTION PROGRAMME

10.1 Selection of the Immediate Action Programme

The National Forestry Programme as outlined in the previous chapters is a comprehensive action programme showing a wide variety of priorities, timing, lead actors and available capability. Although the entire programme should be implemented, some actions are considered more urgent and ready for execution than others. Hence there is a need to make a selection for immediate action from the prime elements of the National Forestry Programme.

The concise priority programme for immediate action as presented in this chapter is based on the following criteria used for selection.

• Very high priority attached
• Relatively low capacity building requirements
• Start of action required immediately (2003)
• Duration of action in most cases short-term (up to 5 years)
• The proposed Department of Forestry is the leading actor or co-leader.

One of the most important considerations is that the proposed Department of Forestry has sufficient capacity and capability to start the selected high priority action programme with immediate effect and execute the various programme elements simultaneously.

In a number of actions the co-operation of other leading or participatory actors is required. The participatory capability of other parties has been assessed as most likely available, although there is always an element of risk involved in joint implementation. The same applies to the capacity requirements, such as funding, expertise and human resource development. Although there may be a need to strengthen some capability aspects of the proposed Department of Forestry, it is thought that the current capability is sufficient to start the selected actions and complete the most essential parts of each of them.

Six Immediate Action Programmes have been distinguished, but no further priorities have been given between them. Each of the Immediate Action Programmes combines actions or elements from the Actions as defined in the previous chapters. An Immediate Action Programme may belong to one and the same forestry category, but could also crossover to another category with corresponding activities. The six programmes cover forestry categories and main objectives as follows:

Programme 1: Natural Forests and Woodlands & Community Forestry (management)

Programme 2: Community Forestry & Industrial Forestry (commercial production)

Programme 3: Natural Forests and Woodlands (improving rural livelihoods)

Programme 4: Community Forestry & Natural Forests (research & practical applications)

Programme 5: Urban Forestry (promotion & development)

Programme 6: Natural Forests and Woodlands (biodiversity conservation)

10.2 The Immediate Action Programmes

10.2.1 Programme 1: Sustainable management of natural forests and woodlands

The sustainable management of the natural forests and woodlands of Swaziland is considered the most urgent and important objective of the National Forestry Programme, for reasons that most other forestry activities depend on the establishment of sustainable management. It is only through empowerment of the communities that sustainable management can be achieved. Local communities should have the responsibilities for the use and management of their communal resources on Swazi Nation Land. In the same way, companies and private persons are responsible for sustainable management of the forest resources on their private or Title Deed Land. Immediate Action Programme 1 combines two of the most important actions, one from Natural Forests and Woodland and the other from Community Forestry.

The main activities of the programme are:

• Increase the community awareness and understanding of the value of natural forests and woodlands, in particular community forests.
• Establish Natural Resources Management Committees (NRMCs) in each of the chiefdoms for the sustainable management of natural forests and woodlands and other communal natural resources.

• Complete criteria and indicators for sustainable management of natural forests and woodlands and for community forestry.
• Convert criteria and indicators into simple standards and guidelines for sustainable management of natural forests and woodlands and community forests.
• Define a strategy for sustainable management of natural and communal forests and woodlands based on the defined criteria and indicators.

• Provide communities, and in particular NRMC members, with the necessary knowledge for sustainable forest management through education and training.
• Assist communities and other stakeholders to formulate forest management plans based on transparent procedures.
• Assist communities and other stakeholders to implement sustainable forest management.

Several of these activities may run concurrently. For instance, awareness raising and the negotiations and arrangement for the establishment of NRMCs can take place at the same time, during which period also the criteria and indicators can be completed. The proposed Department of Forestry is the main actor in all activities, except for the establishment of the NRMCs where the Tinkhundla offices will be the co-ordinating agent and a number of other departments will be involved as well. Some assistance in expertise is needed for the completion of the criteria and indicators. The activities that directly deal with raising the community awareness and the training in management skills would require additional human resources from the proposed Department of Forestry, non-governmental organisations and the National Environment Education Programme.

10.2.2 Programme 2: Development of woodlots, wattle forest and outgrower schemes

This Immediate Action Programme focuses on the commercial and communal management of forest resources other than natural forests and woodlands. Woodlots and outgrower schemes are relatively new developments, both with communal and commercial aspects. The same holds true for the wattle forests in the Highveld and Upper Middleveld of Swaziland, which are characterised by poor management and weak commercial performance. Poorly defined user rights and lack of clarity of ownership are major constraints with respect to achievement of sustainable management of these forest categories. Settlement of existing disputes and agreement on outstanding issues are prerequisites for improved management of woodlots and wattle forests. The main forest category represented in this Immediate Action Programme is Community Forestry but also important elements from Industrial Forestry are included.

The main activities of the programme are:

• Increase community awareness of the importance of woodlots, wattle and outgrower schemes as a major source of wood products, however, also as a possible threat to biodiversity.
• Carry out mapping and registration of wattle forests and woodlots, and define the boundaries of the current extensions of wattle.
• Improve the organisation of commercial wattle growers.

• Complete criteria and indicators applicable to woodlots and wattle forests.
• Convert criteria and indicators into simple standards and guidelines for sustainable management of woodlots and wattle forests.
• Introduce sustainable practices in the commercial wattle forest sector.
• Improve sustainable management and monitoring of woodlots and communal wattle forests through support to the Natural Resources Management Committees (NRMCs).

• Enhance the sustainable production and distribution of wattle and woodlot products, including fuelwood, charcoal, timber and poles.

• Provide training to local communities through the Natural Resources Management Committees (NRMCs) in the planning, implementation and monitoring of woodlots.
• Assist communities and individuals through the NRMCs to formulate wattle management plans and improve the site selection and planning for wattle forest.
• Improve the planning of woodlots and outgrower schemes through focusing on utilisation and rehabilitation of marginal and degraded land.
• Incorporate environmental and biodiversity aspects in the planning for woodlots, wattle forests and outgrower schemes and apply Environmental Impact Assessments.

• Arrange negotiations between all stakeholders to resolve issues related to ownership, land and tree tenure, user rights, equitable access and sharing of benefits from woodlots, wattle and outgrower schemes on communal land.
• Define the role and rights of the traditional authorities with respect to management and use of woodlots and wattle forests.
• Integrate the rights agreements in the management practices of the Natural Resources Management Committees and establish permanent consultation mechanisms between Government and traditional administrative structures to ensure security of tenure of trees and land and to resolve conflict situations.

The human resources of the proposed Department of Forestry need to be further developed in order to be able to cope with the tasks to support the management and implementation activities of the local communities and committees. There is also a major role for non-governmental organisations in these activities. The Tinkhundla offices will provide inputs during the negotiations of ownership and user rights. The commercial forest companies and other government institutions such as the Land Use Planning Section and the Swaziland Environmental Authority will be involved in the planning and site selection for expansion of commercially oriented wattle growers and timber outgrowers.

10.2.3 Programme 3: Commercial exploitation of natural forests and woodlands

Current exploitation of the natural forests and woodland is taking place in an unsustainable way without any value added to products and with few benefits to the rural population. Viable options exist to enhance sustainable commercial extraction of forest products, and to develop tourism, eco-tourism and conservation. The strategy to develop sustainable commercial exploitation of natural forests and woodlands is to achieve the objective in partnerships with all stakeholders aiming to benefit in particular the rural communities.

The main activities of the programme are:

• Investigate the major options for sustainable commercial exploitation, notably extraction and trade in forest products, processing of forest products and tourism.
• Define a strategy for sustainable commercial management of communal natural forests, with regulations pertaining to extraction of forest products.
• Promote and co-ordinate sustainable management of natural forests and woodlands for enhanced tourism and eco-tourism development through involvement of all stakeholders, including the public and private sector, communities and traditional authorities.
• Define a strategy for community involvement in the management of conserved land and investigate options for income generation in community-managed conservation areas.
• Promote the development of small sustainable industries specialising in the processing of natural forest and woodland products.

• Empower communities to retain control over the trade in forest products from communal forests and woodlands and investigate other parties that benefit from the exploitation.
• Introduce permit systems through the Natural Resources Management Committees to ensure that communities remain the principal recipients of revenue and other benefits.
• Control the trade and export of medicinal plants through introducing a license system through the Natural Resources Management Committees to ensure extraction and use by authorised persons only, aimed at local needs.

• Advise communities with regard to proper valuation, trade, marketing and management of forest products.
• Advise communities with regard to options in the processing of forest products and the development of small industries.
• Advise communities with regard to restrictions in the extraction and trade in medicinal plants and the need for protection of these plants.

• Support communities with the setting-up of small industries for the processing of forest products by providing commercial and financial assistance and guidance.

Important inputs during the implementation of this important Immediate Action Programme are also required from other actors apart from the proposed Department of Forestry. There will be a substantial involvement of the traditional leaders, the communities themselves and the Tinkhundla offices, in particular with respect to defining regulations and license systems. The Ministry of Enterprise and Employment (MEE) plays a continuously important role from the initial investigations till the final assistance in implementation. Of particular importance is the identification of capital projects and provision of capital funds through MEE. Also the tourism and conservation authorities (MTEC, SNTC) play a role in part of the programme. For some of the activities the main actors require additional expertise, funding and human resource development. However, these resources should be secured during implementation of the programme and not delay the initiation of the process.

10.2.4 Programme 4: Research and promotion of agro-forestry

Agro-forestry is currently not that much practised in Swaziland but local conditions offer good opportunities. Agro-forestry in a wide sense also includes other applications of trees and plants such as in woodlots, in conservation and for a wide range of medicinal, handicraft, ceremonial and domestic purposes. All of these uses may generate income and improve livelihoods.

Research in agro-forestry and related fields can contribute considerably to the successful development and implementation of agro-forestry and related activities. Of particular importance is the assessment and selection of suitable tree and plant species for application in multi-purpose programmes.

The main activities of the programme are:

• Evaluate traditional local agro-forestry systems for wider implementation and investigate suitable agro-forestry practices based on national and international research information.
• Assess suitable tree species for the specific conditions for each of the Agro-ecological Zones (AEZ) of Swaziland.
• Identify suitable tree and plant species following community needs and specific applications such as agro-forestry, land rehabilitation, woodlots, fuelwood, woodcraft, medicinal use and other purposes.
• Develop plans to ameliorate fuelwood production through enrichment planting, priority planning of afforestation, selection of suitable species and other appropriate measures to ensure sustainable supply of fuelwood to meet needs of communities.
• Initiate the compilation of an inventory of indigenous species used for woodcraft, ceremonial and domestic purposes as part of a comprehensive species utilisation database of timber and non-timber forest products.

• Introduce appropriate agro-forestry practices through the Natural Resources Management Committees (NRMCs) in farming systems and households.
• Improve the knowledge and sustainable application of suitable tree and plant species through support to the NRMCs.
• Educate and train farmers and other interested people through the NRMCs in relevant agro-forestry applications and sustainable utilisation of tree and plant species for handicraft, medicinal, ceremonial and domestic purposes.
• Set up training programmes with the NRMCs to improve community skills in the selection and management of trees in combination with other plant species in the protection and rehabilitation of land.

• Encourage enrichment planting and replanting of species used for handicraft, medicinal, ceremonial and domestic purposes to alleviate pressure on natural forests and woodlands.
• Promote the growing of medicinal plants in nurseries and gardens.
• Promote the use of alternative exotic plant and tree species for woodcraft and establish an identification, propagation and distribution programme.
• Enhance the conservation of culturally important species in forest and flora reserves, gardens and other protected habitats.
• Upgrade the National Tree Seed Centre with an increased seed collection and enhanced distribution capacity.
• Improve the availability of suitable planting materials through government nurseries.

The two main aspects of this Immediate Action Programme are research and application of research results. Current research capacity is limited, but a minor extra input should be sufficient to successfully carry out the essential parts of the programme, which consists largely of applied research and development of the results. The proposed Department of Forestry is the main actor, and in fact the sole actor for most of the activities. Other participants include NGOs, the proposed Department of Energy and the MoAC. Moderate inputs are required in terms of expertise, funding and human resource development.

10.2.5 Programme 5: Development of urban and peri-urban forestry

There is a need to recognise forests and green belts in urban areas as important factors to the quality of life. The strategy of the National Forestry Programme is to establish sustainable urban and peri-urban forestry planning through introduction of integrated and holistic planning procedures. The implementation of the plans aims at conserving unique habitats as green zones and providing important economic, social and environmental benefits to the urban and peri-urban population.

The main activities of the programme are:

• Increase the general awareness and understanding of the value of urban and peri-urban forests and green zones.
• Promote economic, social and environmental benefits, including forests products such as timber, fuelwood, fruit, other edibles, as well as improved well being, amenity, recreation shade, shelter, conservation of aesthetic values and biodiversity.

• Complete the criteria and indicators for sustainable urban and peri-urban forestry.
• Widen the concept and provide comprehensive definitions of different kinds of open spaces and green areas as mentioned in the Urban Government Policy of 1996.

• Identify and develop green areas such as forests, parks, sports and recreational areas, greenways and other open areas as integral part of urban and peri-urban areas.
• Formulate integrated planning and implementation procedures for urban and peri-urban forestry development.

Urban forestry is a new category of forestry, which the country still needs to develop. The proposed Department of Forestry requires additional resources for capacity building, in particular with respect to expertise and human resources. The Ministry of Housing and Urban Development and the Urban Local Authorities are the other major role players, which also need to build capacity to deal with new urban forestry developments. Peri-urban authorities need to be empowered in order to enable smooth transitions from peri-urban to urban conditions, inclusive of the protection of forests and other green zones.

10.2.6 Programme 6: Sustainable use of biodiversity resources and alien species control

This programme represents part of the National Forestry Programme dealing with the conservation of the biodiversity of natural forest resources (Actions 2.1.1 to 2.1.7). The Actions selected relate to threats to biodiversity and the need to increase in size and coverage of protected areas in Swaziland for satisfactory conservation and maintenance of biodiversity.

The primary reason to include Action 2.1.7 in the Immediate Action Programme is the overall importance of the conservation of biodiversity and the role of forestry in this process, notably in the management of forest and flora protection areas. The secondary reason is that the national programme to identify and define Protection-worthy Areas (PWAs) in Swaziland has already been initiated and that the active participation of the Department of Forestry in this process is an essential precondition for successful implementation of this programme. The programme has linkages with the development of tourism and eco-tourism of Immediate Action Programme 3.

Action 2.1.5, namely the development and implementation of integrated programmes to control invasive alien plant species has been selected because of its very urgent character and the already existing political attention and support.

The main activities of the programme are:

Identification and evaluation of forest and flora protection areas

• Define objectives of forest and flora reserves as part of overall protected areas, taking into account the agreed methodology of identification and classification.
• Identify and evaluate forest and woodland protection-worthy areas (PWAs), in particular wetlands within forests and mountain and hill forests and woodlands, through rapid field assessment.
• Liaise with the national PWA programme for the progressive evaluation of PWAs and amendment of conservation categories, in order to select priority forest and flora protection areas for detailed surveys.
• Conduct detailed socio-economic and biodiversity surveys of special forest and flora habitats, notably wetlands within forests and hill and mountain forests and woodlands and make inventories of their occurrence and distribution.

• Make final selections and develop an action plan for proclamation of forest and flora protection areas.
• Proclaim forest and flora protection areas.
• Develop management plans for the proclaimed reserves.
• Implement management plans for the proclaimed reserves.

• Conduct surveys and make inventories of the occurrence and distribution of invasive alien plant species.
• Develop priority programmes for the control and eradication of invasive alien plant species.
• Implement priority programmes to control invasive alien plant species.

The above activities cover a medium-term programme duration, however to start immediately. The proposed Department of Forestry is the lead actor in the evaluation, proclamation and management of forest and flora protection areas, but the overall programme of identification and proclamation of Protection-worthy Areas (PWAs) falls under the responsibility of the Swaziland National Trust Commission (SNTC). The Swaziland Environment Authority (SEA) is also a major role player in this process. Additional funding, expertise and human resource development are required to complete a number of the activities, notably the evaluation, survey and management activities.

The development and implementation of programmes to control invasive alien plant species will require the involvement of several institutions and departments, with overall SEA responsibility and co-ordination. Substantial funding, expertise and human resource development are required to complete the three major activities of this programme. However, the Government is committed to this particular task and may seek assistance from international donors.

11 MONITORING AND EVALUATING THE NATIONAL FORESTRY PROGRAMME

It is of fundamental importance to continuously improving the National Forestry Programme through monitoring and evaluating the progress of the programme. There will be a need to adapt the programme on the basis of the lessons learnt from the monitoring. A monitoring system needs to be put in place, with annual monitoring reports outlining the details of the implementation process and the overall impact of the application of the National Forest Policy. The Forest Advisory Board will play a central role in defining the qualitative and quantitative criteria on which the monitoring and evaluation exercise needs to be based. The Forest Advisory Board will also have to co-ordinate the involvement of other institutions participating in this process.

This National Forestry Programme does not have a restricted time frame, although the emphasis is on the implementation of the short-term components of the programme. A logical time frame for a first evaluation would be after about three years, which is 2005 to 2006. By that time there should be sufficient experience and knowledge from monitoring the programme elements that have started in 2003 or 2004 and will have been partly completed. The results of the evaluation should be used in a revision of the National Forestry Programme that should take place in consultative and participatory way. It is unlikely that a revision requires a complete reformulation of the programme. It will rather focus on changes in the time frame, on capacity building requirements and on specific parts that in the light of changed conditions or different policy views need to be rephrased.

However, minor modification should be continuously made during the implementation of the programme. Both the National Forest Policy and the National Forestry Programme are dynamic and pragmatic in character, which requires a critical approach during the course of the implementation.

The National Forest Policy itself also needs to be continuously and regularly monitored, assessed and evaluated within intervals of 5 to 10 years to ensure that the position of the Government on forestry issues is constantly up to date and keeping track of development trends. This will ensure that the needs of stakeholders and citizens are met taking cognisance of newly emerging issues as detected by new situations and circumstances nationally, regionally and internationally.

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This page was last updated on 25 November 2004