The National Forest Policy, 2002

[ TABLE OF CONTENTS | FOREWORD | PREAMBLE | 1 INTRODUCTION | 2 ISSUES AND POLICY STATEMENTS ~ 2.1 Industrial Forestry ~ 2.2 Community Forestry ~ 2.3 Urban forestry ~ 2.4 Natural forests and woodlands | 3 INSTITUTIONAL, LEGAL AND PLANNING ARRANGEMENTS | APPENDICES ] 

2.1 Industrial Forestry

The commercial forest sector is a valuable economic asset to the national economy providing employment and foreign exchange (see also section 1.1). However, the forest resource has to be managed on a sustainable basis to continue providing these important functions in the future.

2.1.1 Sustainable management of commercial plantations

Sustainable forest management practices need to be applied at all levels of management and operations, by both large and small forest plantation estates. The main aspects of sustainable forest management are economic, social and environmental; which are all three essential in forest certification.

2.1.1.1 Criteria and indicators for sustainable forest management

Forest certification has been set up to satisfy consumer demands and hence to improve the competitive position of forestry companies. In order to qualify for forest certification by internationally accredited organisations a company must comply with a set of regulations.

Sustainable forest management should include the following practices:

• Meet all applicable national, regional and international laws;
• Have legally established rights to harvest;
• Respect local peoples rights;
• Maintain community well-being;
• Conserve economic resources;
• Protect biological diversity;
• Have a written management plan;
• Engage in regular monitoring;
• Maintain high conservation value forests;
• Manage plantations to alleviate pressures on natural forests.

Issue

Although all large commercial plantation forestry companies in Swaziland are currently managed under a certified environmental management system, either FSC (Forest Stewardship Council) or ISO 14001, smaller companies, including wattle growers, are generally not certified.

The present situation with over 90 percent of all commercial forest plantation area being certified indicates that sustainable plantation forest management is to a large extent in place, taking into account protection of catchment areas, biodiversity, and soil and water resources. Local unsustainable practices may still occur, notably with smaller companies. It is expected that the current certification systems will adopt the new national criteria and indicators for sustainable forest management.

Policy

All plantation forestry companies and individual growers must comply with the national criteria and indicators for sustainable forest management in Swaziland.

The criteria and indicators for sustainable forest management as being developed in Swaziland are based on the standard international criteria and indicators and will be applied to compel industrial forestry to adopt environmentally sustainable practices in their forest management. Both companies and individuals will have to comply with the national criteria and indicators in order to obtain certification that the products are manufactured in an environmentally sustainable manner. The Ministry responsible for forestry is the designated authority to monitor that forest management practices do not violate the established or revised thresholds, in collaboration with relevant national and regional institutions. The draft national level criteria and indicators for sustainable forest management in Swaziland are listed in Appendix 3. Furthermore, the operations of the forest industry have to conform to and comply with the quality standards policies and laws as well as labour laws of Swaziland such as the Quality Standards Bill of 2000 and the Industrial Relations Act of 2000.

2.1.1.2 Economic sustainability

Market forces determine whether plantation forestry is economically sustainable, which is reflected by changes in the rotation age. Apart from such economic considerations, there is the issue of narrow-sense sustainability, or the question whether plantation forestry is biologically sound and indefinite rotations of trees can be grown on the same site.

2.1.1.2.1 Long-term economic sustainability of plantation forests

Factors to be taken into account include the long-term effects of site changes, influences of genetic improvements, fertiliser and other chemical treatments, and the risk of diseases.

Issue

Forestry research findings indicate that long-term productivity can be assured and sustained, but there remains a need to critically follow the factual evidence of productivity stability or changes over time.

Of future importance is the question how global impacts of climate change and air pollution will affect plantation sustainability.

Policy

The Ministry responsible for forestry shall collaborate with the private sector in research programmes aimed at maintaining economic sustainability through tree and site improvement.

The strategy to implement the policy should be based on estimated potential of natural resources, with expansion largely achieved by larger yields, through greater efficiency sustained by research, increased growth rate, and improved management, in particular with respect to pests, diseases and fire.

2.1.1.2.2 Introduction of genetically modified organisms (GMOs)

Genetically modified exotic tree species are already used elsewhere in the industrial forestry and are expected in Swaziland in the near future. Genetically modified tree species have the potential to increase the yield and profitability of forest plantations, in particular through increased growth rate, density and immunity to certain pests and diseases.

Issue

Although genetically modified tree species offer important economic opportunities and benefits, there are environmental and ecological risks connected to the introduction of GMOs.

The potential ecological dangers include out-competing natural plant species, increased water consumption, increased encroachment due to uncontrollable invasiveness, increased risk to certain pests and diseases, and narrowing the genetic base.

Policy

Application of genetically modified tree species should be considered in Swaziland, but their introduction should be handled with caution.

International guidelines are provided by the 2000 Cartagena Protocol on Biosafety to the Convention on Biological Diversity. Approval in Swaziland must be obtained from the Ministry responsible for forestry before any genetically modified tree species can be brought into the country. The introduced GMOs will be monitored and kept under surveillance through sustainable forest and environment management. A national policy and legislation on GMOs will be developed, and introduction should be subject to a risk assessment.

2.1.1.3 Social sustainability

Sustainable social management of industrial forestry relates to the socio-economic requirements of local people, in particular neighbouring communities. Social management concentrates on participation and sound planning with the communities living adjacent to plantations.

Issue

It appears that the current relationship between forestry companies and communities is not always optimal.

There are indications that plantation forestry companies sustain substantial losses through timber damage as a result of high fire incidence, of which a large proportion is caused by arson and veld fires that have been started from adjacent communal areas. The underlying cause may be a lack of benefits or dissatisfaction with certain management aspects.

Policy

Forest companies and neighbouring communities should foster good relationships.

Improved relationship requires the forest companies to provide incentives and benefits to local people and communities, but also requires a clear understanding and appreciation by the communities of the importance of the forest companies to the economy of the country and themselves.

Both parties are encouraged to improve relationships by discussing and solving outstanding issues and achieve mutual understanding. The Ministry responsible for forestry shall play a mediating role and point out clearly the benefits of improved relationship, but also indicating the role of the law in cases of arson and theft. The importance of the multiple functions of plantation forestry to companies and communities is further outlined in section 2.1.2.

2.1.1.4 Environmental sustainability

Environmental management aims to maintain and improve natural physical and biological processes. These aspects are included in the forest certification principles, in the criteria and indicators for sustainable forest management and in international agreements. Plantation forestry, like other land uses such as irrigated agriculture, has an impact on the environment in general and on biodiversity in particular. It is important that these effects of cultivation practices are recognised, quantified and sustained. There are concerns with respect to alteration of the landscape, degradation of the soil, high water consumption and effects on vulnerable ecosystems.

2.1.1.4.1 Effects on water consumption

An important factor in environmental sustainability is the volume of water used by forestry in excess of the water used by the natural environment, which could be considered an extra cost. Not only is the presence of water in the soil essential to the growth of forests, but improved water yield and quality are becoming increasingly important watershed management objectives (see also section 2.1.2.2).

Issue

Plantation forests consume large quantities of water.

Although there is information available from various sources in South Africa and elsewhere, reliable and specific estimates of the impact of plantation forestry on the water resources in Swaziland are not available.

Policy

Plantation forestry companies and all other watershed users must apply methods to reduce water consumption and pollution, and establish a balanced use of water by all consumers.

Government agencies responsible for forestry, water management and environment, in collaboration with the forest companies, will be required to carry out a nation-wide mapping of catchment areas, watersheds and watercourses, both inside and outside forest plantation areas, in order to achieve adequate estimates of water consumption. For instance, an effective way to increase water yields is to clear important watercourses from invasive alien species, in particular weeds and wattle trees (see also sections 2.2.2.2 and 2.4.7.3.3).

Efficient and reliable methods to assess the water resources as part of integrated watershed management will increase the knowledge of the water balance and improve the basis for the decision making on the sustainable use of the available water resources. In addition, effects of fertilisers and chemicals such as pesticides on water resources have to be monitored (see also sections 2.1.1.4.2 and 2.1.1.4.4). The principle of the Environment Policy that the cost of water consumption is to be borne by the user should be applied.

2.1.1.4.2 Effects on soil properties

There is evidence that forestry activities have a negative impact on both chemical and physical soil properties, such as nutrient status, soil reaction and soil structure. Forestry companies are well aware of these negative effects and they have to some extent developed practices to avoid and rectify the situation.

Issue

Plantation forestry activities, in particular harvesting and the use of chemicals, negatively influence soil properties and may lead to irreversible soil degradation.

Policy

Commercial forest companies must develop and introduce forest management practices that minimise soil degradation, in particular the long-term residual effects of fertilisers and pesticides.

Forest companies should further address the issue of soil degradation, in particular soil compaction, acidification and depleted nutrient status, and take into account that forestry should not be allowed on vulnerable soils in fragile ecosystems. Harvesting practices, fertiliser programs and other methods with a low impact on the environmental conditions must be continuously researched and further improved. Changes in the condition of soil properties should be closely monitored and remedial measures applied.

2.1.1.4.3 Effects on biodiversity

The impact on biodiversity is inherent to the expansion of plantation forestry and as such inevitable. It is also not unique to this industry, as there are similar impacts from other sectors, e.g. the sugar industry.

Issue

Industrial forestry has in general a negative impact on biodiversity through replacing natural vegetation by monocultures, and to some extent also through invasion of exotic species from the plantation onto adjacent land.

The three larger companies in Swaziland have already successful programmes in place to enhance biodiversity within the plantation - notably in the unplanted areas - and to minimise contamination of adjacent land, but this is not the case with most of the smaller companies and smallholder growers.

Policy

Commercial forest companies and individual growers have to introduce and further develop forest management practices that maintain biodiversity at acceptable levels.

All forestry companies and individual growers must have management practices in place to enhance biodiversity conservation within the plantation and control contamination from inside and outside the plantation. Most companies have effective programmes to control harmful species invading the plantations from outside. Indigenous trees should be left intact or planted along firebreaks, watercourses and other parts of the plantation that are not used for the growing of commercial tree species. The companies must ensure that the most valuable aspects of biodiversity within the plantation are conserved. Co-ordinated planning with the other users of land within the watershed and monitoring by the relevant authorities should be undertaken.

Regulations such as Environmental Impact Assessments and Environmental Audits describing the joint responsibility of Government and the private sector for establishing strategies for the conservation of the biodiversity and specific habitats will be an important step forward. The principle should be applied that the environmental costs of afforestation are to be borne by the user. Identified management practices include water catchment identification, river course prioritisation, creation of buffer zones, alien plant removal, control of burning regimes, limiting disturbance and preservation of the forest ecotone.

2.1.1.4.4 Pollution and effluents from wood production and processing industries

Industries associated with the commercial forest plantations use the wood products from the plantations for the production of secondary products such as pulp, chips, logs, timber and bark tannin. Most of these activities, including waste in production forests, have only minor effects on the environment, but especially the pulp and paper industries use large quantities of water, which return to the environment in polluted form. Without adequate regulation, the pollution from such processing industries impacts negatively on both the human and biophysical environment.

Issue

There are indications that effluents discharged from wood processing industries, in particular the pulp and paper industries, do not always meet safe standards, which may lead to pollution of water and air.

Continuous pollution may result in major catastrophes with permanent damage to the environment.

Policy

The ‘polluter pays’ principle shall be applied and enforced in all cases of pollution of the environment by effluents from forest and wood or paper processing industries.

Acceptable environmental standards including permissible levels of industrial effluents, emissions and waste disposal are established by the Waste Regulation 2000 as part of the Swaziland Environment Authority Act of 1992 and enforced by the responsible institutions and authorities. There is a need to also regulate air pollution.

2.1.2 Multiple use of plantations

In addition to the primary commercial purpose of plantation forests, there are presently important additional developments towards the multiple use of the plantation forests, which include an array of other functions and services. These include commercial, social and environmental activities, which are currently part of the overall sustainable plantation forest management (see previous section 2.1.1). Of particular importance are the commercial outgrower schemes (see section 2.1.3). Other important functions are enhancement of social and economic livelihoods of neighbouring communities, the role of plantation forests in watershed management and in fuelwood supply (sections 2.1.2.1, 2.1.2.2 and 2.1.2.3).

2.1.2.1 Collection of plantation forest products by neighbouring communities

Several plantation forest companies have initiated programmes to improve social relations and economic empowerment of neighbouring communities. Community members are allowed limited access to the forest for the collection of specific products, such as honey, mushrooms, grasses and reeds for handicraft and traditional ceremonies, and are provided with by-products such as fuelwood, debris, etc.

Issue

Not all of the commercial companies have satisfactory programmes in place to provide neighbouring communities with plantation forest products.

Although the important contribution made by certain forest companies is acknowledged, there is room for expansion, also with respect to broadening the scope of products.

Policy

Commercial companies should further extend and enhance the programmes to provide social and economic benefits from the controlled collection of forest products to communities adjacent to plantations.

Both large and small commercial companies should cover comprehensive programmes. Government should encourage the extension of such programmes between communities and companies.

2.1.2.2 The role of plantation forests in overall watershed management

The major companies are setting aside areas for conservation and protection of biodiversity, and have also initiated programmes to enhance recreation and tourism, such as fishing, hiking and picnic facilities.

Issue

Plantation forestry is a major influence on the multiple functions of watersheds, and there is presently insufficient co-ordination with the other users within the watershed.

Policy

To protect biodiversity and promote recreation and tourism, plantation owners should co-operate with other landowners and users in overall watershed management.

Co-operation and co-ordination with other users of the catchment will facilitate potentials that can only emerge from the multiple uses. For instance, the draft National Water Policy calls for the representation of stakeholders in water basin authorities and other bodies responsible for watershed management. All stakeholders, including large and small plantation forest estates have to conform to and comply with requirements and regulations of sustainable water resource management and environmental management.

2.1.2.3 The role of industrial forestry in national energy supply

Substantial national and localised shortages of fuelwood are expected to occur in the near future, which calls for increased supply from sustainable sources, including plantation forests (see also section 2.4.4.3).

Issue

The demand for fuelwood and other energy sources in Swaziland is expected to increase, which will result in shortages.

Increased supply from plantation forests and forest industries can meet some of the increased fuelwood demand.

Policy

The commercial plantations and the forest industries should be encouraged to play an increasing role in contributing to the national fuelwood supply.

Increased supply in addition to the already existing free delivery to neighbouring communities should be economically and environmentally sustainable with respect to overall forest plantation management. Conversion of mill waste to energy could make a significant contribution, as indicated by the draft National Energy Policy Options Paper (1.5.2.7). Various other options should be investigated, such as commercial trade in waste from forests through licensing systems to adjacent communities or entrepreneurs, or by the companies themselves. Additional value adding processing should be considered, e.g. production of briquettes from saw dust and timber waste.

2.1.3 Commercial forestry outgrower schemes

Forestry companies are enlarging their plantation scope by contracting rural timber outgrowers in nearby communities to grow timber on Swazi Nation Land (SNL), and to some extent also on Title Deed Land (TDL). This is presently taking place at a small scale, and schemes are not long enough in place to evaluate results. Key issues that have emerged relate to planning, acquisition of land, size of plots, and management, as well as to possibilities of establishing smart partnerships, joint ventures and co-management of commercial forest plantations by communities jointly with or on behalf of forest companies.

2.1.3.1 Planning of outgrower schemes

Current planning and expansion of outgrower forest schemes are generally not based on rational land use planning (see also next section 2.1.4).

Issue

It appears that land suitability and environmental and biodiversity aspects are not satisfactorily included in the planning of outgrower schemes.

Policy

In principle, outgrower schemes shall not be located in protection-worthy areas or on good quality arable land, but on marginal land or on eroded land which can be rehabilitated through afforestation.

Site selection has to be improved, with Environmental Impact Assessment (EIA) as a compulsory routine exercise as part of the planning required by the Regulations 2000 emanating from the Swaziland Environment Authority Act (see section 1.6.1.2). Planning should be based on Agro-ecological Zoning (AEZ), indicating land suitability for various uses. The Control of Tree Planting Act of 1972 should be reviewed or applied with more flexibility with respect to the need for expansion for outgrower schemes.

2.1.3.2 Traditional administration and tenure rights of outgrower schemes

It is important to take into account tenure rights and land related disputes in present and planned outgrower schemes.

Issue

There is concern about the proper involvement of traditional administration and rights with respect to the land and tree tenure.

As a principle, land and tree tenure should be guaranteed by the Constitution (section 1.4).

Policy

The selection of sites from Swazi Nation Land (SNL) must involve the traditional administrative structures of the country, to ensure security of tenure of the land and trees planted for the duration of the crop, and resolve conflict situations.

The Ministry responsible for land tenure will advise in land tenure matters and the Ministry responsible for forestry will provide forest extension services in liaison with the forest plantation companies.

2.1.4 Prospects for expansion of plantation forest

Increasing international demand for wood products makes on one hand the future outlook for the forest industry in Swaziland promising, but will on the other put more pressure on present land, water and forest resources. Plans exist for substantial expansion of plantation forests in Swaziland, largely on the basis of economic justification, such as revenue generation and employment. Uncertain factors relating to the expansion of plantation forests in Swaziland include the unstable export markets and fluctuating prices, especially for pulpwood. However, funding for afforestation in developing countries has become a feasible option for some large foreign power producers with the additional purpose of establishing carbon sink schemes.

2.1.4.1 Sustainable expansion of industrial forest area

Conversion of land to plantation forest is now subject to Environmental Impact Assessment (EIA) through the Regulations of the Swaziland Environment Authority Act. Although expansion may help alleviate pressure on the natural resource base and increase carbon sequestration, commercial forestry as a land use is competing with other land uses such as crop production, grazing, and residential use.

Issue

Increasing international demand for wood products would favour the expansion of plantation forestry in Swaziland, notwithstanding uncertainties of markets and prices, but excessive expansion would ask a heavy toll from the scarce commodity of land in Swaziland.

Suitable land for forest expansion will be hard to find. Forestry companies are normally acquiring private Title Deed Land (TDL) for expansion, but remaining private land is very limited. The only option would be to identify new land for plantations from Swazi Nation Land (SNL) in the Highveld and Upper Middleveld. This option also seems limited, considering the increasing population density and the present need for other land uses in these zones.

Policy

A gradual and sustainable expansion of the industrial forest area will be promoted, in balance with the overall land distribution and land use, and in consideration of all possible effects on population and biodiversity.

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.

The Control of Tree Planting Act of 1972 should be reviewed in view of the need for commercial forest expansion, in particular with respect to flexibility to grant tree-planting permits. The expansion of industrial forestry estates should take into cognisance the investment and industrial development policies and laws of Swaziland, such as the Industrial Development Policy and Investment Promotions Act of 1998.

There is a need to carry out a rational system of planning based on land evaluation and Agro-ecological Zoning (AEZ) when considering conversion of the current land use to forest plantation, taking into account the following issues:

• Land suitability and production potential for forestry and other relevant land uses.
• Social aspects, in particular increasing population pressure and community participation.
• Vegetation condition and composition.
• Important habitats and species diversity.
• Application of forestry in land rehabilitation.
• Water conservation and water quality.

2.1.5 Value Adding Initiatives

At the present time there is insufficient value adding to forest products in Swaziland. The majority of the wood from the industrial companies is exported to South Africa and overseas countries as unprocessed round wood and semi-processed products.

2.1.5.1 Establishment of value adding industries

The current situation constitutes a lost opportunity for Swaziland in terms of revenue generation, foreign exchange earnings and job creation.

Issue

The majority of commercial forest products are currently exported as unprocessed wood or semi-processed products, with relatively low added value.

Policy

The establishment of value adding industries for the processing of wood products should be promoted, and the export of unprocessed or semi-processed forest products be discouraged.

It is important to create an enabling environment for potential investors by providing adequately skilled human resources and efficient infrastructure. Enhancing existing tax incentives for the establishment of downstream forest products processing industries could also facilitate this policy. It should be investigated whether this could be achieved through offering pioneer status with tax exemption and industry protection for a given period of time, and whether the introduction of export taxes on unprocessed or semi-processed products would have the desired effect. Such tax could decrease with the level of processing till a zero level on fully processed final products. The introduction of resource rent in future plantation expansion should also be considered.

2.1.5.2 Forestry and existing fiscal policy

As a matter of principle, forest policy aspects need to be harmonised with the existing fiscal policy, as is the case with other sectoral policies, such as the draft National Water Policy.

Issue

At the present moment Government is not generating revenue from certain forestry practices, such as harvesting through concessions, whereas taxes should be raised in such cases according to the current fiscal policy.

Policy

Stumpage or royalty taxes should be introduced when a concession is given for harvesting of trees on government land, and resource rental should be introduced for leased government land and Swazi Nation Land.

Taxes received could be channelled back for further development of the forestry sector, in particular community forestry and management of the natural forests and woodlands.

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This page was last updated on 25 November 2004