The Forest Policy Green Paper

This is a Forest Policy Green Paper 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. A national Forest Policy will be an outcome of this discussion document.

Executive Summary

This Forest Policy Green Paper is a discussion document only. Its main objective is to stimulate debate among all stakeholders on forestry issues considered relevant, including environmental concerns and the present and future role of forestry in the Swazi society.

The Forest Policy Green Paper is the first major step in the process of formulating a National Forest Policy. Such a policy needs to be based on stakeholder consultation, and provide a framework reflecting the overall vision and specific objectives of the government and all other stakeholders.

The Forest Policy Green Paper is intended to serve as catalyst towards achieving a common vision for forestry. The views of different stakeholders on forest issues are often conflicting. It is in the national interest that the combined stakeholders find common ground for the future use and development of all forest resources. One of the goals of the discussion that is to take place on the basis of the Green Paper is to develop respect and understanding for the different views of people and to suggest and outline a common prospect.

Some of the elements of common vision beneficial to all Swazis would include the following:

A sustainable use of all forest resources based on stakeholder responsibilities
A prosperous forest production sector with shared benefits
A new balance in user rights and ownership of forests in the various land tenure categories
A secured access to the forest resources for basic needs and requirements
An integrated approach by all stakeholders to manage, conserve and protect forests, woodlands and savannas
A revised legislation based on present and future views and needs
Basic agreement on the main forest issues will provide the starting point for finding a common vision

The Green Paper reviews the current state of forests in Swaziland including who are the stakeholders and what forests are used for. It sub-divides forestry into several important utilisation sectors including industrial, community communal and conservation forestry. Each is reviewed separately and issues and concerns originating from the review of literature and consultation with a small representative section of Swazi society. Issues that have been identified during this process range from education and public awareness of the importance of forestry to the sustainable management of the large and important commercial forestry sector to the community managed natural forests. Important issues that need to be discussed and ultimately addressed relate to the unsustainable exploitation of the natural forest and woodland resources, in particular the extraction of timber and non timber forest products, including timber for construction, fuelwood and medicinal plants.

The status of the forest resource is described in terms of forest inventory, natural vegetation systems and the occurrence of deforestation and land degradation. Special emphasis is given to the underlying causes of forest degradation and deforestation which give rise to a number of important issues that need to be addressed.

The current situation with respect to biodiversity is described. Major threats to habitats and biodiversity have been identified and its adverse impact on the socio-economic well being of the nation’s rural communities who rely heavily on the natural forests and woodlands for their existence. The very serious threats to biodiversity indicate that there is a need to develop alternative approaches to the conservation of Swaziland’s unique flora, ecological habitats and important biodiversity, in addition to the present official concept reflecting a status quo in conservation and protection. To mitigate the loss of biodiversity, protection worthy areas have been identified to boost the national conservation estate which is lagging behind international protocol.

A review of existing forest policy and legislation is presented in the context of international conventions and initiatives. The Principles for the Sustainable Management of Forests originating from the UN Conference on Environment and Development are found to be very relevant to the development of the new Forest Policy for Swaziland and are recommended for adoption.

National policies and strategies relevant to forest policy, such as the National Development Strategy and the Swaziland Environment Action Plan as well as other policy development initiatives and processes of relevance have been reviewed and found to have a bearing on the forest sector provide a sound framework for Forest Policy formulation.

Many shortcomings of the existing legal framework relevant to forest and environmental management are identified. The fragmented legal and institutional framework reflects strong divisions between, e.g. government structures and traditional structures, and SNL and other land. There are many gaps in the legal framework and much legislation is outdated and there is inadequate enforcement.

Forestry issues to be addressed in forthcoming stakeholder meetings are presented in a systematic order to stimulate discussion and to facilitate a comprehensive appreciation of the very diverse and complex nature of forestry.

Political, technical, and institutional constraints need to be taken into account during the formulation of the new Forest Policy.

Political constraints relate to existing legislation which does not recognise the socio-economic importance of non-timber forest products and indigenous forest resources and need to be incorporated into future legislation. Forestry appears to receive low priority within national development planning. Protection and respect of social and cultural values in the utilisation and management of forests deserve due recognition in a new Forest Policy.

Technical constraints relate to the limited knowledge that exists in key areas, including information and understanding of the utilisation patterns of indigenous forests, lack of knowledge and experience with community based forest interventions. It is necessary to distinguish between commercial plantation forestry, important in generating export earnings, and indigenous forests, important in supporting rural livelihoods. Application of Natural Resource Accounting techniques will enable a more appropriate valuation of the economic value of the nation’s natural resources. Environmental and ecological factors are particularly important in determining future land use whether for forestry, agriculture or any other land use.

Institutional constraints relate to the current inadequate capacity and capability of the present Forestry Section to carry out its mandate. As a result of the widening of the definition of forestry, there is a need to reassess the institutional requirements in order to enable the forestry service to carry out its expanded core functions. A strategic evaluation of the functions, ministerial position and status of a new institution responsible for forest management needs to be undertaken to meet its broader commitment to a new Forest Policy.