The National Forest Policy, 2002This is the draft Forest Policy and as such is a working document and not a formal policy document. It should not be interpreted as the policy of the Government of Swaziland or the Ministry of Agriculture and Co-operatives until it has been finally agreed and adopted. [ 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 ] 2.2 Community ForestryCommunity or social forestry refers to communal, group and individual participation in the 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. It has links with commercial forestry through outgrower schemes on communal land (section 2.1.3) and with urban forestry applied on urban and peri-urban land (section 2.3). Community forestry is also involved with the use and management of natural forests and woodlands (section 2.4) as well as with wattle forests within the community boundaries (section 2.2.2). Community forestry is currently 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 woodlots (section 2.2.1.3), wattle management (section 2.2.2.4) and natural forest management (section 2.2.5.2). 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 (section 2.2.6). Communities need to organise themselves in Forest Management Committees, which should work in close co-operation with the existing community traditional structures. Several of the participatory forestry programmes recommended for implementation in the urban and peri-urban areas (see section 2.3.1.4) are also applicable to community forestry in the rural areas, in particular with respect to concentrated residential areas, schools compounds and recreational areas. 2.2.1 Community woodlotsThe establishment of community woodlots in Swaziland is a relatively new development to supplement fuelwood and timber in addition to other sources such as wattle and natural forests. Most of the recently implemented woodlots consist of Eucalyptus (gum), which grows especially well in the Highveld and Upper Middleveld. The majority of the wattle forests, which only occur in these two zones, are in fact also used as woodlots. Eucalyptus species which are successfully grown in the higher rainfall zones are normally less suitable in the dryer zones of the Lower Middleveld and Lowveld, where a better use should be made of suitable indigenous species, or of specially selected drought resistant or drought tolerant exotic species and hybrids. The success rate of woodlots is difficult to assess because of their short existence. However, failures have been recorded after the initial implementation stage by Government or NGOs, caused by deficiencies in planning and design, lack of management and co-ordination as well as by conflicts in the sharing of benefits. The management of woodlots is the most important aspect of the production process, in particular yields need improvement, such as through coppicing practices. Joint evaluation of current woodlots by the Ministries responsible for forestry and energy should enhance future woodlot development. 2.2.1.1 Planning of woodlotsWoodlots are often implemented in isolation of other communal developments. Most are designed for the production of fuelwood, but experience shows that for economic reasons the primary use by the community is for timber, with fuelwood as a by-product. Whole communities, groups or individuals, with different social and economic intentions and interests establish woodlots. Issue Woodlot planning is currently not part of integrated rural development planning, and communities are not sufficiently involved in the design and decision making process on the purpose and utilisation of woodlots. Policy Woodlots have to be planned for through participatory land use planning as integral part of holistic rural development, based on the assessment of community needs. Overall deficit or surplus of local wood production and woodland regeneration, including from wattle forests, should be assessed in a situation analysis before the planning and design of woodlots. An economic analysis needs to be carried out to determine which type of woodlot and tree species is most appropriate. Assessment of the suitability of the land should be the basis for the identification of suitable locations. In particular degraded land should be designated for woodlots, with the additional benefit of contributing to land rehabilitation. Since the introduction of the requirement of an Environmental Impact Assessment (EIA) for the establishment of woodlots, environmental and biodiversity aspects have to be taken into consideration in the planning process. 2.2.1.2 Community woodlot management skillsThe lack of co-ordination in implementation and maintenance, and hence low production, indicates lack of community management skills. Issue Most communities do not to have the necessary technical knowledge to manage woodlots. Policy Community members shall be supported and trained to develop forestry management skills for improving the management and monitoring of woodlots. Improved management may be achieved through the establishment of communal Forest Management Committees (see also section 2.2.5), with an important training role for the extension services of the Ministry responsible for forestry, and to some extent the private sector. 2.2.1.3 Ownership and user rights of woodlotsAs a matter of principle, ownership and user rights of trees should be clearly defined with respect to tree tenure as well as land tenure. Issue There is lack of clarity of ownership and user rights of community owned woodlots, resulting in disagreements over benefits and revenue sharing. Harvesting and other practices related to the use of woodlots by community leaders are often not in the interest of the community. Poorly controlled woodlot harvesting practices without shared benefits range from removing single trees to clear felling. Policy Important stakeholder issues such as ownership, equitable access and sharing of benefits of woodlot products must be resolved and defined, including the role and rights of the traditional authorities. Land allocation procedures should be transparent with regard to rights of tree planting and harvesting. Stakeholders need to organise themselves in Forest Management Committees to negotiate and reach general agreements on sustainable use and management of woodlots, in particular with respect to benefits resulting from harvesting and responsibilities for replanting. 2.2.2 Wattle forestsWattle forests were originally planted as commercial entities and enterprises, but most wattle now grows largely unmanaged. Wattle forests are still commercially exploited (section 2.2.2.1), but many of the wattle stands as presently occurring in the Highveld and Upper Middleveld are only used as communal resources (section 2.2.2.3). Wattle is considered a very useful tree for fuelwood, pulpwood, mining timber, charcoal and tannin, but is also seen as a threat to biodiversity, as it is an invasive species (section 2.2.2.2 and also 2.4.7.3.3). Most of the present wattle resources are currently found on Swazi Nation Land (SNL), and rights of access and utilisation appear to be complicated (section 2.2.2.4). Recent forest inventories have indicated that wattle coverage has not changed significantly over the last ten years, but overall volume and quality seem to have decreased. In general it is observed that wattle forest is expanding and encroaching into other vegetation, cropland, grazing land and sensitive areas such as valley floors. However, it also appears that wattle forest is being overexploited at a higher rate than it regenerates, with the result that the age class structure of the current wattle resource is badly distorted towards young crops. 2.2.2.1 Commercial production and management of wattleThere has been a general decline in the management of commercial wattle forests. Medium and small holders now almost exclusively control commercially grown wattle, as the large industrial companies are phasing out the growing of wattle. Issue Overall commercial management of wattle forests is poor and production of timber and bark tannin is low. Policy In order to attain optimal value, commercial wattle management must be improved through introduction of sustainable practices and improved organisation of the growers. Options to improve current management would include proper registration and organisation of wattle growers and grower co-operatives – such as in the Swaziland Timber Growers Association - and the introduction of planting and management grants or loans. The Ministry responsible for forestry should administer such schemes and assist in initiating funding, and play a further role in extension services to wattle growers. The site selection and planning based on Agro-ecological Zoning (AEZ) for wattle expansion has to be improved, with an Environmental Impact Assessment (EIA) as a compulsory routine exercise as part of the planning. The Control of Tree Planting Act of 1972 should be reviewed or applied with more flexibility with respect to the need for wattle forest expansion. 2.2.2.2 The effect of wattle on biodiversityWattle (Acacia mearnsii) is an alien invasive tree species and a major threat to biodiversity if not properly managed (see also section 2.4.7.3.3). Issue Wattle has invaded ecosystems where it has a negative impact on the water balance and the natural vegetation. Policy The spread of wattle must be controlled by proper management, and wattle trees have to be removed from ecosystems where they form a threat to biodiversity. 2.2.2.3 Non-commercial use and management of wattle resourcesA large proportion of the wattle resources is used in a non-commercial way, however with a low and unsustainable management level. Wattle is one of the major sources of fuelwood and other wood products on communal land. Considering increasing wood shortages on a national basis, in particular fuelwood, there is a need to increase the role of wattle forests as a source of fuelwood, charcoal and other wood products (see also section 2.4.4.3). Issue As a result of poor management, wattle on communal land is not used to its full potential as a major source of fuelwood, charcoal, poles and other products. Policy Wattle forestry on communal land must be enhanced as a major source of wood products, including fuelwood, charcoal, timber and poles, through improved management practices and distribution systems. Wattle reserves on Swazi Nation Land (SNL) used by communities and individuals should be made more productive and better controlled with respect to encroachment onto other land. Sustainable management should be introduced with the assistance of the Ministry responsible for forestry through communal Forest Management Committees. 2.2.2.4 User rights of wattle on communal landAlthough individuals have in the past planted most wattle on allocated plots on Swazi Nation Land (SNL), this wattle has spread out over other communal land, mostly grazing land. There are conflicts over the user rights of these uncontrolled wattle stands. Issue There is lack of clarity of user rights of uncontrolled wattle trees on communal land. The issue of access and rights is closely related to the management aspect (see previous section 2.2.2.3). Policy The user rights of wattle trees that have spread out over communally used Swazi Nation Land (SNL) shall be defined and agreed to on the basis of equitable access and shared benefits. Ownership and tenure of trees should be clearly defined. All stakeholders, including the traditional authorities, have to negotiate and define the user rights and tree tenure aspects of communal wattle stands. The communal Forest Management Committees should be instrumental in this process. 2.2.3 Agro-forestryAgro-forestry refers to mixed land uses where the use of trees, crops and livestock are integrated. The use of trees in mixed systems 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. Indigenous fruit trees and vegetables enhance the nutrition of household diets and sustain rural livelihoods through income generating activities. Some traditional agro-forestry systems practised in the country need to be further studied and evaluated with a view to improving these systems for wider implementation. 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. 2.2.3.1 Scope for agro-forestry development in SwazilandAgro-forestry is currently not much practised as part of the existing farming systems in the country. However, climatic conditions in large parts of Swaziland are conducive to the growing of trees, either indigenous or exotic species. Issue There is a lack of application of agro-forestry in Swaziland. There are clear indications that the introduction and use of agro-forestry could provide many advantages and benefits to farmers in Swaziland. Policy Appropriate agro-forestry practices for Swazi farming systems shall be promoted, introduced and further developed, based on national and international research information. The promotion of agro-forestry should include education and training of communities in agro-forestry concepts and management. Institutions to be involved in training and research should include relevant government ministries, the University of Swaziland, forestry companies and NGOs. 2.2.3.2 Selection of suitable tree speciesThe selection of suitable tree species in agro-forestry in general and for specific purposes in particular, such as for woodlots (see section 2.2.1) and land rehabilitation (see section 2.2.4), is an issue that needs further attention. Issue There is a lack of knowledge at community level about the application of suitable tree and shrub species in special circumstances and for specific purposes. Policy The proper selection of suitable tree and plant species on the basis of community needs for each of the Agro-ecological Zones (AEZ) of Swaziland must be an integral part of agro-forestry planning. Specific tree species, with emphasis on indigenous species, should be researched and selected for specific situations, e.g. nitrogen-fixing Acacia species in semi-arid areas. The current situation needs to be assessed with respect to tree seed procurement, production and distribution of the required selected seedlings. 2.2.4 Trees and land rehabilitationForests, woodlots and single trees have important functions in soil conservation and rehabilitation of degraded land. The use of trees in soil conservation in combination with other rehabilitation methods has proven to be an effective strategy. Most degraded sites are the result of complex processes, which require an evaluation of the situation and analysis of the causes before formulation of mitigation plans. 2.2.4.1 Effective use of trees in conservation and rehabilitation of landThe selection and use of trees in land rehabilitation depends on the type and state of land degradation. For instance, areas affected by sheet erosion require a different approach as compared to gullies. In general, restoration of the vegetative cover is one of the most important solutions to the problem. Very often a combination of grasses, shrubs and trees is the most efficient and effective way of controlling degradation. Issue Communities do not effectively use trees in combination with other plant species in the protection and conservation of land. The reason is that communities have little experience and skills in the selection, management and use of trees and other plants for conservation and land rehabilitation. Policy Communities shall be trained in efficient use of trees in combination with other plant species in the conservation and rehabilitation of land. Forest Management Committees need to be organised and trained in community forestry applications to rehabilitate land, especially the technical and management aspects. The Ministry responsible for forestry, together with NGOs and other stakeholders, has a major role to play in the training of communities in rehabilitation of degraded land. Interventions through afforestation and reforestation require demonstration of applicable technology, with selection of suitable tree species and provision of seedlings (see also section 2.2.6). A relevant application would be enrichment planting, focusing on the use of valuable indigenous tree species such as Kiaat (Pterocarpus angolensis). 2.2.5 Communal rights and responsibilities in indigenous forest managementCommunity forestry does not only relate to planting of trees at homesteads, woodlots, agro-forestry or rehabilitation schemes but also to the use and responsibility for the management of the communal natural forests and woodlands. Community forestry is an important aspect of the overall management of natural forests and woodlands, but not the only one. Other policy aspects of a more general nature are covered in section 2.4 dealing with the management of forest and woodland resources on a national basis. This section focuses on specific elements related to community rights and responsibilities with regard to communal forest resources. 2.2.5.1 Communal responsibility for the management of indigenous forestsChiefs are officially responsible for the overall management of the communal forest and woodland reserves. However, community support and participation is needed to effectively manage the resources. Issue There is a lack of technical knowledge of sustainable forest management within communities and a lack of responsibility within the communities to manage the community forest. Policy Communities must be provided with technical knowledge and empowered to take full responsibility for the sustainable management of their own forest resources. Community empowerment within their Chiefdoms is best achieved through the establishment of Forest Management Committees, which should work in close co-operation with the existing community traditional structures. Education and training of local leadership, traditional healers and general community members in sustainable management of forests as a community property is a precondition to empowerment. Relevant institutions such as the Ministry responsible for forestry have an important role to play in this process. 2.2.5.2 Ownership and user rightsThe rights to use communal forests and the distribution of benefits to individuals are not always clear and satisfactory. Issue There is a lack of agreement and definition with respect to ownership and user rights of communal indigenous forests and woodlands. Policy Detailed rules and regulations covering the access and user rights to forest resources as well as the responsibilities of communities and their individual members towards management of communal forest resources must be agreed to and defined. The envisaged Forest Management Committees should be encouraged and empowered by the traditional authorities to negotiate relevant 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. The Ministry responsible for forestry has to administer, manage and monitor implementation and operation. The responsible Ministry should also control adherence to the institutional arrangements and the rules and regulations as defined and agreed by all stakeholders. 2.2.6 Services to support community forestryThe recognition of the importance of community forestry is only recent, and specific support has been rather insufficient or inappropriate so far. 2.2.6.1 Effective services to community forestryThe sustainable development of community forestry is one of the key areas in forestry, and requires to be given adequate focus and support. Issue Forestry support and extension services have been insufficiently directed towards improving local community capacity to develop forestry activities and manage communal forest and woodland reserves. The main reason has been the insufficient resources to provide such services. Policy The attention of forest support services shall focus on community forestry as one of the key forestry areas. The services apply to all of the aspects of community forestry as mentioned in the previous policy sections. Forestry services, as provided by government agencies or NGOs, need to be enhanced and co-ordinated by the Ministry responsible for forestry. Available government resources should be evaluated and strengthened. The required services include the following:
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