PART I
THE SITUATION
AND RECENT
DEVELOPMENTS
IN THE FOREST SECTOR
STATE OF THE WORLD’S FORESTS 2001
Recent developments
T
his chapter discusses some of the main issues
and emerging trends in the forest sector,
focusing largely on the last two to three years.
As it is impossible to cover all new
developments, notable events and significant
trends worldwide, selected issues receiving
international attention during this period have
been highlighted.
THE STATUS OF FOREST RESOURCES
Forest cover
The Global Forest Resources Assessment 2000
(FRA 2000) provides the most recent information
on the state and change of forest cover, or area,
globally. The results of the assessment are
discussed in more detail in Part II.
Forests cover about 3 870 million ha, or
30 percent of the earth’s land area. Tropical and
subtropical forests comprise 56 percent of the
world’s forests, while temperate and boreal
forests account for 44 percent. Forest plantations
make up only about 5 percent of all forests; the
rest is natural forest. FRA 2000 revealed that the
estimated net annual change in forest area
worldwide in the 1990s was -9.4 million ha,
representing the difference between the
estimated annual rate of deforestation of 14.6
million ha and the estimated annual rate of
forest area increase of 5.2 million ha.
Forest condition
Although global forest area and deforestation
rates are often used to frame discussions about
forests, perhaps of greater significance are the
condition of forests and their ability to provide
the range of goods and services demanded of
them. The condition of forests is even more
difficult to assess than area, however. In FRA
2000 (see Part II), an effort was made to report
on forest damage from various causes and to
assess wood supply and production. An
indication of related trends is provided
indirectly by recent efforts to assess the
effectiveness of forest management (see
Management, conservation and sustainable
development of forest resources, p. 6). A pilot
assessment of the health of the world’s
ecosystems, including forests, was undertaken
by the United Nations Environment Programme
(UNEP), the World Bank and the World
Resources Institute (WRI) (Rosen, 2000).
Concern about deforestation and forest
degradation, which are evident in many places
throughout the world, has given rise to a
number of analyses of the causes and effects
(e.g. UN, 1996; Kaimowitz and Angelsen, 1998;
and Contreras-Hermosilla, 2000). The causes of
forest degradation and loss are complex and
vary widely from place to place. A distinction is
made between direct and underlying causes.
Major direct causes of forest degradation
include insect pests and diseases; fire;
overharvesting of industrial wood, fuelwood
and other forest products; mismanagement of
production forests, including poor harvesting
practices; overgrazing; air pollution; and
extreme climatic events such as storms. Habitat
degradation caused by these factors and the
overharvesting of wildlife are major factors
contributing to local depletion of forest-based
wildlife populations. Underlying causes include
poverty, population growth, markets and trade
in forest products, and macroeconomic policies.
This section will be limited to discussion of
two noteworthy causes of forest damage during
the 1999-2000 period: i) severe wildfires in
many countries, with recently updated
information on the wildfires of 1997 and 1998 –
the worst years reported for wildfires and forest
fires in recent times; and ii) the violent storms
that hit Europe in December 1999. As disastrous
as these events proved, however, they have had
some positive outcomes and have produced
useful lessons.
The spate of wildfires that occurred globally
over the last four years catalysed national policy
PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR 1
2 STATE OF THE WORLD’S FORESTS 2001
responses and regional and international initiatives
in the prevention, early warning, detection and
control of fires. Countries demonstrated their
ability to react quickly and effectively to the
storms in Europe, which helped to minimize the
negative environmental, economic and social
impacts of the storms. Modifications in forest
establishment and management measures are now
being proposed to reduce the potential risk of
storm damage in the future.
Forest fires.
1
Large areas of forest around the
world caught fire in 1997 and 1998, when intense
El Ni?o-related drought conditions prevailed. The
extent of these fires and the damage attributed to
them were so immense that one United States
newspaper described 1998 as “the year the earth
caught fire”. At times this seemed to be literally
true, as millions of hectares burned and smoke
blanketed large regions such as Central America
and Southeast Asia, disrupting air and sea
navigation and causing serious threats to public
safety. Seventy people were killed by the fires in
Mexico alone. Ecosystems that are not generally
subject to fires, such as the Amazon rain forest in
Brazil and the cloud forest of Chiapas in Mexico,
sustained considerable damage. Estimates of forest
cover burnt by the fires include:
9.7 million ha in Indonesia (including 6.5
million ha in East Kalimantan), where the
economic costs incurred are estimated to have
been between US$4.5 and US$10 billion and 75
million people were affected by the fires,
smoke or haze in 1997-1998;
4.3 to 7.1 million ha in the Russian Federation
in 1998;
2.7 million ha in Mongolia in 1997;
nearly 4 million ha, or about 17.5 percent of
the total area of the Brazilian state of Roraima,
in the fire of 1998;
more than 800 000 ha in Mexico in 1998, said
to have been the country’s most difficult
wildfire season in memory.
Although on a smaller scale than in 1997-1998,
the global wildfire situation in 1999-2000 was
again serious. Fires were widespread in Indonesia
in 1999 and 2000, but not on a comparable scale
with the 1997-1998 period. The major fires in 2000
occurred in Ethiopia, the eastern Mediterranean
and the western United States:
Ethiopia had an extreme wildfire season early
in the year as a consequence of the delayed
onset of the rainy season and increased land
use pressure. Burning to clear agricultural land
in the montane forests in the southern part of
the country led to large-scale wildfires and, by
the end of the dry season in April 2000, more
than 100 000 ha of these forests had been
severely affected or destroyed by fire.
Wildfires burned about 2.8 million ha of forests
and grasslands in the United States (as of
September 2000). The situation was
particularly serious in the western states,
which suffered severe drought conditions. An
enormous national firefighting effort was
mobilized, supplemented by firefighting
personnel from Australia, Canada, Mexico and
New Zealand. This firefighting effort cost the
United States about US$1 billion.
The prolonged drought in the eastern
Mediterranean region in mid-2000 led to a bad
fire year for several countries. By the end of
September 2000, more than 150 000 ha had
been burnt in Greece.
2
The Balkan region
(particularly Bulgaria, Romania and Croatia)
and Turkey also suffered serious wildfires.
The above-mentioned fires made “headline
news”, yet frequently occurring and widespread
fires in many areas of the world do not always
receive coverage by the international press.
Hundreds of thousands, and sometimes millions,
of hectares burn annually in fire-adapted
ecosystems, including in dry zones of West Africa,
large areas of Africa south of the equator, Central
Asia, southern Latin America and Australia. For
1
The material for this section was provided by R. Mutch and
J. Goldammer. It was collected for the Special report on forest fires,
carried out under FAO’s Global Forest Resources Assessment
2000. This ongoing global study has compiled fire
statistics and narratives by country and will provide a
basis for understanding the global fire situation in
the 1990s.
2
Provisional data, not yet confirmed.
3 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
example, during the fire season in 2000, an
estimated 200 million ha were burnt in Africa
south of the equator.
The severe wildfires witnessed over the past few
years have resulted in far greater public awareness
of the causes and effects of forest fires, a focus on
policy-related issues and the mobilization of efforts
at the national, regional and international levels.
A current debate in the United States is focused
on the extent to which tree thinning, timber
harvesting and prescribed burning might reduce
fire hazards in the future. Adherence to a policy of
fire exclusion for many decades has led to an
unnatural accumulation of fuels within fire-
dependent ecosystems. Fires in forests of long-
needled pines now burn at much higher intensities
than they did before 1900, when fires occurred
more frequently. Because they are larger and more
intense, the fires today are more difficult to control
and are more damaging.
While there is a common perception among the
public that fires are bad for all forests, in fire-
adapted forest ecosystems they are a form of
natural disturbance that helps maintain and renew
the ecosystem and can actually improve habitat
quality in the long term. While the short-term
effects of fire may be impressively destructive, the
long-term ecological effects in these ecosystems
may be beneficial.
A number of studies on the Indonesian fires
of 1997-1998 have examined the underlying
social and economic causes of these fires
(e.g. Rowell and Moore, 2000; Barber and
Schweithelm, 2000; and studies under way by
the Center for International Forestry Research
[CIFOR]). They draw a strong link between fires
and land use policies and land management
practices. The causes include small-scale
agricultural fires that burned out of control, the
use of fire to clear land for large-scale
plantations (e.g. oil-palm) and conflicts between
land users.
Fires occurring elsewhere in Southeast Asia and
in parts of the Americas and Africa are often
related to agricultural practices and land clearing,
as fire is traditionally used as a land management
tool. Evidence suggesting that burning occurs
significantly less often in community-managed
forests has led to programmes involving local
communities in efforts to reduce the risk of
wildfire (e.g. Project Firefight of the World
Conservation Union [IUCN] and the World Wide
Fund for Nature [WWF]). Community-based fire
management projects, most of them designed as
Integrated Forest Fire Management projects, are
under way in several countries, including Brazil,
The classic approach to fire prevention and fire suppression
has been largely unsuccessful in many developing countries.
This failure can mainly be explained by the lack of resources
necessary to operate state-controlled fire monitoring systems.
In addition, land and natural resources are state-owned in most
countries, so local people are not inclined to invest in their
management. Experience has shown, however, that people’s
attitudes can be changed if governments grant ownership or
long-term user rights to the resources.
The Gambia introduced community forestry on a pilot basis
in 1991 and began implementing it on a countrywide scale
in 1994. With the enactment of forest legislation in 1998, the
Government of the Gambia fully endorsed the transfer of forest
ownership to rural communities. A recent case study on the
management of forest fires through the involvement of local
communities compares the attitudes of villagers who are in-
volved in community forest management with those who are
not involved (FAO, 2000a). The survey reveals that the popu-
lation in general is very much aware of the damage caused
by fire, and of its dependency on forest resources. It is not
a lack of awareness that inhibits communities from partici-
pating in the fight against wildfires; it is a lack of incentive.
The study shows that the occurrence of fires has declined con-
siderably in the area of the country in which community
forestry was started. In this area, only two fires have been
reported since 1992 – and both were fought successfully by
the local communities concerned. The study further indicates
that community management contributes to the stronger
enforcement of laws and by-laws related to fire prevention
because the resources are subject to more effective control.
BOX 1
Community forestry and fire prevention
and suppression in the Gambia
4 STATE OF THE WORLD’S FORESTS 2001
Indonesia, Mongolia and Namibia. These
participatory projects involve farmers and villagers
in efforts to improve their use of fire (in
agricultural land clearing, for example) and in fire
prevention and suppression tasks. The successful
experience of the Gambia (see Box 1) suggests that
community-based natural resources management
may be a promising alternative to traditional fire
control methods.
Many countries do not have policies or
systematic fire management strategies that enable
them to respond quickly or aggressively to
outbreaks of fires, although the situation is starting
to change. Increasingly, countries are developing
policies and practices to improve their institutional
capacities to prevent, prepare for and combat
forest fires. Since the disastrous 1998 fire season,
the Ministries of the Environment and of
Agriculture in Mexico, for example, have
collaborated to reduce the threat of agricultural
burning to forests. In Brazil, measures have been
taken to support fire prevention programmes with
the public and to train farmers in improved
agricultural burning practices. Early in 2000, in
Indonesia a new Directorate of Forest and Estate
Fire Operations was set up under the Ministry of
Forestry and Estate Crops to strengthen the
country’s fire management capabilities.
Recent initiatives have also been launched to
promote better regional cooperation in forest fire
control. For example, a new pan-Baltic forest fire
initiative was begun in 1998, involving the
preparation of mechanisms for mutual assistance
in large fire emergencies. The Association of
Southeast Asian Nations (ASEAN) set up the
Forest Fire Management Centre in Thailand in the
wake of the 1997-1998 fires to provide fire
management training and research for the ASEAN
countries.
Several international initiatives related to
wildland fire awareness, prevention, preparedness,
management and response were initiated over the
last two years.
Three notable examples are:
The Global Fire Monitoring Center (GFMC),
established in October 1998 in Freiburg,
Germany as an activity of the UN
International Strategy for Disaster Reduction
(ISDR). GFMC monitors, forecasts and archives
information on vegetation fires at the global
level; provides early warning and fire
monitoring services; and offers advice to
policy-makers around the world.
The Fire Hazard Team, established in
December 1999 by the Disaster Management
Support Group of the Committee on Earth
Observation Satellites (CEOS). Comprising
major institutions around the world that are
active in the field of remote sensing of
vegetation fire occurrence and fire effects, the
team will advance the use of remote sensing
in wildland fire management.
In 2000, ISDR conducted a global public
awareness campaign on disaster reduction,
the theme of which was “Disaster Prevention –
Youth and Education: Wildfires”.
Policy-makers are beginning to realize that a
continued emphasis on emergency response will
not prevent large and damaging fires in the future.
The way out of the emergency response trap is to
couple emergency preparedness and response
programmes with more sustainable land use
policies and practices. Actively working towards
more sustainable forestry practices is an important
part of the strategy for improving the conservation
of natural resources and reducing the impacts of
wildfires.
Windstorms in Europe.
3
Severe windstorms swept
through Europe in December 1999. The first storm
hit Denmark and Sweden on 3 and 4 December,
and two subsequent storms struck further south
between 26 and 28 December, centred on France,
Germany and Switzerland. These five countries
were the most severely affected, but many other
countries sustained substantial damage. In these
few days, the storms wreaked destruction on
forest lands and uprooted thousands of trees
outside forests, leaving a changed landscape in
their wake. An estimated 193 million m
3
of
material was felled, and windfalls in some
countries equalled several years’ harvests. In total,
3
Much of the information in this discussion is based on UN-
ECE/FAO, 2000a; and the UN-ECE Timber Section Web site, at:
www.unece.org/trade/timber/storm/storm.htm.
5 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
the damage represented six months of Europe’s
normal harvest. The consequences of the storms
were far-reaching. They had a substantial impact
on many people’s livelihoods and severely
affected forests, forest-based industries and current
and future markets (see Production and
consumption of forest products, p. 13).
In most places, the response to the storms was
rapid and effective. Many governments provided
assistance to their forest and forest industries
sector (see Box 2 for a description of the situation
in France). National responses included reduced
fellings in undamaged forests; log storage
programmes; subsidies and loans to sawmills to
hold increased inventories; the diversion of
material into wood energy markets; funding to
replant, reopen forest roads, take necessary
phytosanitary measures and mobilize forest
workers and equipment; and support to transport
services, including the transportation of logs to
mills in distant areas. Tax relief was also provided
to forest owners, and subsidies and low-interest
loans were available for purchasing machinery
and hiring emergency workers.
Storms are not unusual in Europe – windblows
of over 20 million m
3
have occurred about ten
times since the early 1950s – but those of
December 1999 were the most destructive there
had been for several decades. It is not possible to
say whether storms are becoming more frequent
or more severe in the region, but a report
prepared for the French authorities (Y. Birot,
personal communication) suggests that several
factors have contributed to an increase over time
in storm damage to forests in France, including:
increased forest area;
higher standing volume per hectare;
the replacement of (relatively wind-stable)
coppice, and coppice with standards, by high
forest;
stands with greater height;
increased planting of conifers (Douglas fir and
spruce, among others), which are more
susceptible to wind than broad-leaved species
in winter, when winds are strongest in Europe.
Following the storms, many countries
examined ways to reduce the possibility of
severe storm damage in the future. In France, for
On 26 December and again on 27 and 28 December 1999,
two hurricanes crossed France from west to east. Winds
reached speeds of 150 to 200 km per hour, which are un-
usually high velocities for Europe. Hurricanes of the same in-
tensity had occurred in France over the last two decades –
in Brittany and Normandy in 1987, in the central mountain-
ous area in 1982 and in northeastern France in 1990 – but
they had covered a much smaller area.
The resulting damage to France’s forests exceeded that of
any other storm in the last century. The equivalent of two
annual harvests was uprooted, felled or broken. Windfalls
amounted to more than one-third of the total growing stock
in some counties. A significant proportion of the 3 million
small- and medium-sized private forest owners, together with
many communes that rely heavily on forest revenues, suffered
major financial hardship. In mid-January, the Government of
France launched the Plan national chablis (the National
Windfall Plan) which, during the first year, concentrated on
providing support – in the form of subsidies and soft loans,
for example – for log harvesting, storage and transportation
in order to remove as much of the wood as possible from
the forests. The aim was to facilitate forest regeneration and
to reduce the risks of fire, insect pests and diseases.
By the end of 2000, about half of the windfallen trees had
been removed, mainly from the more accessible and valu-
able stands. The wood was sold at prices not exceeding 80
percent of the usual value, and often much less. State sub-
sidies, amounting to some 90 million euros (US$77 million)
per year for the period 2000-2009, have been earmarked for
assisting private owners and communes to clear and regen-
erate their forests.
example, recommendations have been developed
on forest establishment and management
measures that would reduce their susceptibility in
the future. The silvicultural changes called for in
France and other countries include increased
reliance on natural regeneration and the use of a
greater variety of species, including hardwoods.
BOX 2
The impact of storms on the forests
in France
6 STATE OF THE WORLD’S FORESTS 2001
It is worth noting that these measures could well
have some long-term significance for the
biological diversity of forests in parts of Europe.
MANAGEMENT, CONSERVATION
AND SUSTAINABLE DEVELOPMENT
OF FOREST RESOURCES
Efforts around the world are focused on achieving
sustainable forest management, an approach that
balances social, economic and environmental
objectives. This has resulted in changes in forest
policy and legislation in many countries. On the
ground, changes are occurring in management
objectives and practices and in the range of people
involved in planning and managing forests.
Broader approaches to forest management, such as
ecosystem and landscape management, are
becoming more widely accepted and put into
practice. These approaches recognize the
dynamism of ecological and social systems, the
necessity of adaptive management, and the
importance of collaborative decision-making.
Integrated strategies for forest conservation, in
which the conservation of forest resources in
general and of biological diversity in particular
includes management both inside and outside
protected forest areas, are increasingly being
developed (see Part II, Forest biological diversity
conservation: protected area management).
At the international level, efforts to encourage
sustainable forest management include the
development of tools and mechanisms to
encourage the adoption of better management
practices. Certification of forest products is a
market-based mechanism, devised to encourage
sustainable forest management (see Forest
products certification – recent developments,
p. 18); a number of other international efforts to
support sustainable forest management are
described in Part III, International dialogue and
initiatives related to forests. Criteria and indicators
have been developed as a way to measure
progress towards achieving sustainable forest
management, and model and demonstration
forests have been established to demonstrate
sustainable management in practice. The
International Tropical Timber Organization’s Year
2000 Objective promotes sustainable forest
management in countries that produce and
consume tropical timber. Increased attention is
being paid to combating illegal activities in the
forest sector and, for the first time, the issue of
forest corruption is being addressed openly in
international fora (for a more detailed discussion,
see Part II, Illegal activities and corruption in the
forest sector).
The present discussion highlights two subjects
related to forest resources development –
biotechnology and forest plantation establishment
– and two subjects related to forest management
and conservation – the adoption of
environmentally sound timber harvesting practices
and restrictions on timber harvesting. In addition,
an issue related to the management and
conservation of forest-based wildlife resources is
discussed: that of unsustainable hunting of
bushmeat, which is an increasingly serious
problem in some parts of the world. To
complement this section, a full discussion of key
issues is provided in Part II, Forest biological
diversity conservation: protected area management.
Biotechnology in the forest sector
Biotechnology encompasses a wide range of
scientific techniques that use living organisms, or
their parts, to make or modify products.
Conventional plant biotechnology – plant breeding
– has been used for thousands of years for the
improvement of agricultural crops but its use for
breeding and improvement of forest trees is more
recent. Biotechnologies are now commonly used
for tree breeding and propagation and also for
processing applications, such as pollution control
and raw material breakdown.
Modern plant biotechnology has recently
become one of the most rapidly advancing fields
of scientific research on plants, offering potential
benefits – and risks – to forestry. Modern
biotechnologies currently used in forestry fall into
three broad categories: biotechnologies based on
molecular markers; technologies that enhance
vegetative propagation; and genetic modification
of forest trees (see Box 3).
Although many traditional aspects of
biotechnology and its application are
uncontroversial, genetically modified organisms
7 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
(GMOs) have become the target of an intensive
and, at times, emotionally charged debate. While
this attention has mainly focused on the crop
sector, the debate is now entering forestry.
Genetic modification of forest tree species using
recombinant DNA techniques has been
contemplated for addressing traits such as virus
resistance, insect resistance, lignin content and
herbicide tolerance. Insertion of genes governing
these traits into a new transgenic species is a
substantial undertaking. The major limiting factor
at present is the low level of knowledge regarding
the molecular control of traits. This is particularly
important for traits governed by an array of
genes, as is the case for the characteristics of most
interest for production forestry, for example
growth rate, adaptability and stem and wood
quality.
There has been no reported commercial
production of transgenic forest trees, although 116
field trials, in 17 countries and involving 24 tree
species, have been reported (Owusu, 1999). It is
acknowledged that biosafety aspects of genetically
modified trees need careful consideration,
especially because of the long generation time of
trees and the potential for the dispersal of pollen
and seed over long distances.
While the application of new biotechnologies in
the forest sector offers interesting opportunities,
especially for genetic conservation and increased
production of wood and other forest products, a
cautious case-by-case approach is necessary when
integrating these new tools into long-term
conservation and breeding programmes. Many
issues need to be evaluated more extensively,
including their added value compared with that
offered by existing conventional breeding methods;
their cost; the level of capacity building and
resources required to use and maintain them; their
potential impact on human health and the
environment; existing regulatory and legal
considerations at both the national and
international levels; and consumers’ preferences.
Establishment of forest plantations
Forest plantations can fulfil a number of functions.
Plantations have been established for
environmental rehabilitation and for soil and water
Modern biotechnologies currently used in forestry fall into
three broad categories:
Biotechnologies based on molecular markers which can
be used, inter alia, to: i) quantify genetic diversity among
populations and individual trees; ii) identify genotypes in
taxonomic studies, biological studies and “genetic finger-
printing”; and iii) locate genes affecting quantitative traits
of economic importance.
Technologies that enhance vegetative propagation and
support large-scale production of uniform materials. Tissue
culture of plants under laboratory conditions can also be
used to select traits such as disease resistance and toler-
ance of herbicides, metals, salt and low temperatures.
Micropropagation is already used in crop and horticultural
species, and techniques exist for its application in a num-
ber of forest tree species. High costs are currently an
impediment to the direct use of micropropagated material
in forestry programmes.
Genetic modification of forest trees. The term genetically
modified organism (GMO) generally refers to an organ-
ism into which genetic material from other organisms has
been introduced.
BOX 3
Modern biotechnologies and forestry
conservation in many locations. Elsewhere, wood
production has been the overriding objective. The
following discussion focuses on plantations for
timber production. (See Part II, The status of
forests: the Global Forests Resources Assessment
2000, for information on the area of forest
plantations worldwide in 2000.) The role of forest
plantations in sustainable forest management has
been the subject of considerable attention.
4
One
reason for this is that future increases in demand
4
For example, at the International Experts Meeting on the Role
of Planted Forests in Sustainable Forest Management, held in
Santiago, Chile, 6-10 April 1999. Sponsored by the
Governments of Chile, Denmark, India, New Zealand and
Poland, this meeting provided input to the Intergovernmental
Forum on Forests (IFF).
8 STATE OF THE WORLD’S FORESTS 2001
the planned pulp and paper industry. In a few
countries, plantations have superseded natural
forests as a source of wood. In Chile, Indonesia,
Myanmar and South Africa, for example,
supplementing wood supplies from natural forests
has been a primary objective of plantation
establishment. In some Asian countries (China,
Japan and the Republic of Korea) and a number of
European countries, plantation establishment has
served primarily as a means of increasing or
replenishing forest estates. New Zealand, the
Philippines and Thailand have withdrawn all, or
most, of their natural forests from timber
production as a conservation strategy. Many of the
countries mentioned have substantial areas of
available land and thus have the potential for
further plantation establishment.
While plantations have a long history in some
countries, the development of a globally
significant plantation estate is a relatively new
phenomenon. This is illustrated by the global age-
class distribution of industrial forest plantations in
1995, as displayed in Figure 1. FAO estimates
(Brown, in prep.) suggest that some 54 percent of
the global area of industrial plantations in 1995
comprised trees less than 15 years of age, with 21
percent planted between 1990 and 1995. The
plantations that are older than 50 years are
located almost exclusively in temperate and
boreal regions.
In most countries, rates of plantation
establishment vary annually and are influenced by
a range of factors, including government finances,
general economic conditions, incentives offered to
private sector interests, perceptions of the
profitability of forest activities and levels of
promotional activities. A notable feature of recent
patterns of establishment has been the emergence
of Asia as the dominant region for new plantings.
Asian plantations constituted 40 percent of global
industrial plantations in 1995 and 57 percent of the
plantations established since 1985.
The development of forest plantations in some
countries has already had a major impact on wood
production. In Chile and New Zealand, for example,
the establishment of extensive areas of plantations
has enabled these countries to meet all their domestic
wood needs and also to support a significant export
for wood are predicted to be met largely from
plantations. They are considered to be an efficient
means to produce forest products on a relatively
limited land base, and they are therefore seen by
many as helping to reduce deforestation and
degradation of natural forests. However, if they
are poorly planned and managed and if existing
land uses are not taken into consideration,
plantations can have negative environmental and
social impacts. This concern is reflected in the
opposition to plantations that is voiced by some
groups, particularly environmental non-
governmental organizations (NGOs) and civil
society groups.
The global trend is towards increased
establishment of plantations and reliance on them
as a source of industrial wood (see Box 4). In
tropical countries, for example, plantations will be
a particularly important source of raw material for
The Philippines, Mexico and China are three of several coun-
tries that have taken specific measures aimed at increasing
their national forest plantation areas.
In the 1930s, the Philippines had about 17 million ha of
forest. By 1994, however, the conversion of forests to
agriculture and other land uses had reduced the country’s
forest area to 5.7 million ha. In response, the government
banned logging in undisturbed and ecologically sensitive
forests, and it recently introduced fiscal incentives for the
establishment of forest plantations. The Master Plan for
Forestry sets a target of 2.5 million ha of forest planta-
tions to be established over the period 1990-2015.
In 1997, the Government of Mexico introduced a 25-year
forest plantation programme, PRODEPLAN, which provides
economic incentives for the establishment of forest plant-
ations in degraded and abandoned lands.
China plans to increase its forest cover to about 7 percent
by 2010, mainly by establishing 9.7 million ha of forest
plantations between 1996 and 2010.
BOX 4
Countries seeking a rapid increase
in forest plantation area
9 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
developed codes of practice for forest harvesting
6
call for the use of environmentally sound timber
harvesting practices or RIL, and substantial work
has been done on testing and using RIL in the field.
Although many countries have initiated
research, training and implementation of RIL, it
has still not been widely accepted. The
environmental benefits of improved harvesting
methods over traditional methods are clear; RIL
can reduce environmental damage associated with
felling and skidding practices, extraordinarily large
felling gaps or the excessive use of forest land for
infrastructure. It can also reduce stand damage
5
See the State of the World’s Forests 1999 for more details.
6
Codes of practice for forest harvesting have been prepared for
use at the global level (FAO, 1996) and at the regional level for
Asia and the Pacific (FAO, 1999a). A regional code is being
planned for Africa, and national codes have been prepared for
Fiji (1990), Vanuatu (1997), Guyana (1998) and South Africa
(1999); a code for China is currently in preparation.
Source: FAO data in Brown (in prep.).
industry with supplies from
plantations. In most other
countries where the domestic
demand is high, however,
plantation-grown timber supplies
are inadequate to meet demand
and must be supplemented by
imported timber.
While the private sector has
played a major role in plantation
development in developed
countries, most plantations in
developing countries have been
established by the government.
For various reasons, government
plantations have generally been
managed according to low-
investment, low-intensity
regimes. In some developing
countries, however, the private
sector (including both individual
landowners and industries, often
in partnership) is becoming
more involved in forest
plantations. This development
has been determined by a
number of factors, including
changes in land tenure and
more liberal policies and legislation. Brazil, India,
Indonesia, Malaysia and Thailand are some of the
countries where the private sector is playing a lead
role in plantation development. Financial
questions, including profitability and accessibility
of funds for investment, are of major importance.
Economic viability and risk issues are particularly
critical, both where large areas of plantations are
already controlled by the private sector and where
governments are offering to sell off their
plantations under privatization schemes – as is the
case in such diverse countries as Australia, Brazil,
Chile, Indonesia, Malaysia, New Zealand and
South Africa.
Environmentally sound forest harvesting practices
The emphasis on sustainable forest management has
resulted in greater attention to environmentally
sound timber harvesting practices, often referred to
as reduced impact logging (RIL).
5
Recently
FIGURE 1
Industrial plantation age-class structure by region, 1995
0-5 6-10 11-15 16-20 21-25 26-30 31-35 36-40 41-45 46-50 >50
0
50
10
15
20
25
Africa
Asia
Oceania
North and Central America
South America
Europe
CIS and Baltic states
Plantation area (million ha)
Age class (years)
10 STATE OF THE WORLD’S FORESTS 2001
significantly (Bach, 1999). The financial benefits,
however, are perhaps less obvious. RIL entails
additional investments in planning, training and
the construction of road and skid trails (Ahmad,
Brodie and Sessions, 1999). Some studies
7
claim
that the higher costs of RIL methods are more
than compensated for by the various benefits that
would not otherwise materialize. One recent
research report
8
makes the following suggestions.
The higher costs required for implementing
RIL are associated with increased planning and
more developed management and information
systems. The financial benefits relate to
increased production, combined with less
waste and reduced costs resulting from the
more efficient use of machinery.
The savings in machine costs marginally
outweigh the resulting additional costs. When
the value of the increased production (because
of reduced harvesting waste) is added, the
adoption of RIL techniques may significantly
reduce the production costs per cubic metre of
wood.
Savings are also achieved at the operational
level. With increased production per unit area,
there can be a consequent reduction in the
allocation of the fixed cost of road construction
per cubic metre harvested.
Other recently published studies indicate that:
total logging costs decrease slightly when RIL
is applied (Bach, 1999);
increased operational costs associated with RIL
are offset by the financial gains from increased
timber utilization (Ruslim et al., 2000; Van der
Hout, 2000).
Despite the promising findings, the economic
and financial viability of RIL still needs to be
demonstrated under a wide range of conditions. In
addition, the higher costs of implementing RIL are
likely to act as a deterrent unless the financial
benefits, which may only become available in the
longer term, can be captured. Both demonstrated
financial viability and an assurance that the forest
owner or manager will be able to operate long
enough to gain these benefits are essential
preconditions. A lack of long-term security of
resource use rights to forest land is likely to limit
the use of RIL. When the right conditions are in
place and operators are committed to
environmentally sound timber harvesting practices,
effective implementation will require considerable
capacity building and field training efforts.
Restrictions on timber harvesting
Many regions of the world continue to experience
high rates of deforestation and forest degradation,
despite efforts to ensure forest protection and
conservation. Excessive commercial logging is
commonly (although sometimes erroneously)
blamed for the rapid decline of natural forest
resources and for floods and landslides. This has
led to political decisions in some countries to ban
logging in natural forests, either totally or partially.
Other countries are considering bans and
restrictions on timber harvesting as a strategy for
conserving their diminishing natural forests.
The effects of harvesting restrictions or bans
may be wide-ranging. Among other things, they
can shift harvesting pressure from one forest area
to another; affect forest-dependent peoples;
increase or decrease employment opportunities
(both inside and outside the forest sector); change
trade patterns and regional financial flows; and
disrupt existing markets or encourage new
markets – both domestic and international.
A number of questions therefore need to be
answered: Do logging bans really help conserve
forests? Can deforestation be halted or reduced by
restricting timber harvests, particularly in natural
forests? What are the key elements for
implementing such bans successfully? What have
been the experiences of countries that have
implemented logging bans and what impacts have
such measures had?
The effects of logging bans differ dramatically
with the type of restriction, the exact details of the
restriction, the products affected, the extent of
other restrictions, the policies pursued by other
countries, market conditions, etc. Some of the
effects may be positive, others negative. The
outcome is neither straightforward nor predictable.
7
FAO, 1997a; FAO, 1997b; FAO, 1998a; FAO, 1998b.
8
Edinburgh Centre for Tropical Forests. 2000. Activities and
outputs for the Barama Company Limited. Report on reduced impact
logging research. (unpublished)
11 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
Total or partial bans on logging in natural forests are being
used by several countries in the Asia and Pacific region to
protect or conserve forests or reduce floods, landslides and
land degradation. To gain an insight into the impacts and
effectiveness of harvesting restrictions as a means of achiev-
ing conservation objectives, the Asia-Pacific Forestry Com-
mission (APFC) carried out a study of the efficacy of remov-
ing natural forests from timber production to achieve forest
conservation.
1
Six country case studies were carried out
(China, New Zealand, the Philippines, Sri Lanka, Thailand
and Viet Nam) and a regional overview and a synthesis of
issues, impacts and experiences were prepared.
The study revealed that experiences with logging bans
across the region have been highly variable. New Zealand
and Sri Lanka, for example, have achieved considerable
success in conserving natural forests under state ownership,
by shifting harvesting pressures to alternative sources – to
plantations in the case of New Zealand, and to non-forest
trees in home gardens as well as to imports in the case of
Sri Lanka. In some other countries, the removal of natural
forests from harvesting has had significant negative impacts
on the forest products sector, local economies and
communities. Logging bans have also often failed to bring
about effective forest conservation, as even more
destructive illegal harvesting activities have continued in
the absence of strict monitoring and control or as
harvesting has shifted to neighbouring countries with
weaker environmental controls or monitoring capabilities.
Perverse incentives, ineffective implementation of harvest
restrictions and a lack of alternative land and timber
resources have discouraged the development of alternative
domestic timber supplies in some countries, such as
Thailand and the Philippines. Both of these countries have
experienced continued high rates of deforestation and
illegal cutting, despite imposing total or partial logging
bans more than ten years ago. Meanwhile, both countries
have become significant net importers of timber.
The country case studies identified the following precondi-
tions and policy frameworks that may contribute to the
success of logging bans and enhance natural forest
conservation.
Appropriate pre-existing land tenure instruments and mar-
ket structures, which encourage private tree growing, can
significantly mitigate the negative economic and social
disruptions of logging bans.
The provision of “safety nets” through temporary assistance
and new employment and income opportunities for those
disadvantaged by the timber harvesting bans is important.
Effective monitoring and evaluation of implementation
plans, and corrective actions, are fundamental to long-term
success.
The study also suggests that temporary logging bans can
provide a useful “time out” to allow for improved analysis and
planning of harvest options, or to facilitate the restoration of
forest health where forests have been severely degraded.
China’s Natural Forest Protection Programme, initiated in
1998, is pursuing this approach.
1
FAO. Efficacy of removing natural forests from timber production as a
strategy for conserving forests. Bangkok, FAO Regional Office for Asia
and the Pacific. (in prep.)
BOX 5
Conserving natural forests in Asia and the Pacific: much more than simply banning logging
12 STATE OF THE WORLD’S FORESTS 2001
A recent study on harvesting bans in Asia and the
Pacific, carried out by the Asia-Pacific Forestry
Commission (APFC), concludes that any decision
to use logging bans must be based on a thorough
analysis of all the potential effects and must take
into consideration alternative means of achieving
the same results (see Box 5).
The APFC study concludes that harvesting bans
are not a simple solution to the challenges of
natural forest protection. Rather, bans and
restrictions on harvesting are but one possible
policy tool, to be applied only after due
consideration of the potential implications and
implementation requirements. The study revealed
that logging bans have tended to be politically
driven and impulsively imposed, often as a result
of devastating natural calamities where prior forest
misuse and degradation have been seen (with or
without sound evidence) as significant
contributing factors. Decisions to impose logging
bans have generally been made at the highest
political levels, often with very little time for
relevant institutions to prepare for implementation.
The study also finds that logging bans per se
have seldom addressed the basic underlying issues
and causes of deforestation and forest degradation.
Instead, they have tended to focus on the directly
observable symptoms. To be successful,
conservation strategies (including logging bans)
require a clear understanding of the root causes of
forest degradation. They must also reflect specific
achievable goals, and they must consider site-
specific conditions and challenges to sustainable
forest management. Adequate policies and
ongoing support are necessary prerequisites for
effective implementation of logging bans and other
conservation measures. The study notes the
importance of clear objectives, adequate resources,
a strong political will and the recognition of the
costs that will need to be borne over the short and
medium term.
In some cases, logging bans may be the most
effective means available to address specific
problems, above all because they have an
immediate impact. However, there may be more
effective or cheaper means of addressing
problems, including sustainable forest
management with balanced multiple use, the
9
Projections of the extent of future imports range from
20 to 65 million m
3
per year by 2010, a substantial increase
over current levels.
introduction of RIL, and the more effective
allocation and enforcement of forest use rights.
The conclusion drawn from various experiences
and analyses is that the decision to impose
logging bans should be made in a very broad
policy context because of their potentially wide-
ranging and complex impacts. It must also be
recognized that restrictions in one country can
transfer or add to the problems of other countries.
The logging ban introduced by Thailand in
1989, for example, had significant impacts on both
Thailand and other countries in the region.
Thailand moved from being a timber exporter to
an importer, putting severe harvesting pressure on
neighbouring countries such as Cambodia, the Lao
People’s Democratic Republic and Myanmar.
Restrictions or bans on timber harvesting in the
central, northeastern and southwestern regions of
China, which were imposed in late 1998 for
environmental reasons (i.e. severe flooding), have
had social, economic and trade impacts. China
imports and exports large quantities of wood but,
overall, it is a significant and growing net
importer.
9
The harvesting restrictions have reduced
supply, while demand for wood products has
grown in China. Some countries, both inside and
outside the region, see this as an important
opportunity to expand their sales. Neighbouring
countries such as Cambodia, Mongolia, Myanmar,
the Russian Federation and Viet Nam are under
pressure to increase their harvests to export wood
to China. Not all countries see this as an
opportunity, however; concerns over the possible
impact on local supplies and domestic processing
industries are emerging in some countries. For
example, Mongolia, which had already introduced
log export bans in 1995, reacted to the increased
Chinese demand by restricting exports of
sawnwood in order to protect its own industry
and its domestic consumers.
Forest-based wildlife: the bushmeat crisis
Unsustainable hunting, especially commercial
hunting, is the major cause of what is known as
13 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
the “empty forest syndrome” – the elimination of
most of the animal life by hunting (Bennett and
Robinson, 2000). Meat from wild animals, widely
known as bushmeat, has long been a staple of
rural people in many parts of the world but, with
urbanization, the demand for bushmeat is
increasingly being met by commercial hunters and
traders. There are questions about the
sustainability of the bushmeat trade in South and
Central America, the Caribbean, Asia and
elsewhere, but it is in equatorial Africa that there
is talk of a bushmeat crisis. One reason for this is
that the forests of tropical Africa are rich in
primate species, which are particularly vulnerable
to overexploitation because they breed slowly and
often have small populations. About 15 primate
species are believed to be threatened by the
bushmeat trade. The number of chimpanzees in
Africa is believed to have declined by 85 percent
during the twentieth century. Other species
threatened by the bushmeat trade include the
forest elephant (Loxodonta africana cyclotis), the
water chevrotain (Hyemoschus aquaticus), six duiker
species, the leopard (Panthera pardus) and the
golden cat (Profelis aurata).
Concern about the implications of the bushmeat
crisis in the forests of tropical Africa has led to
the formation of NGO groups such as the Ape
Alliance and the Bushmeat Crisis Task Force,
which are seeking ways to address the issue.
The bushmeat crisis was also on the agenda of
the Eleventh Conference of the Parties to the
Convention on International Trade in Endangered
Species of Wild Fauna and Flora (CITES), since
considerable illegal cross-border trade in the meat
of species listed in CITES Appendix 1 is occurring
between countries in Central Africa (see Part III,
p. 109, for information on CITES). The Parties to
the Convention unanimously supported a proposal
to establish an intersessional working group to find
solutions to the bushmeat crisis in Central Africa.
FOREST GOODS AND SERVICES
The list of forest goods and services is long and
varied. They range from wood and non-wood
forest products (NWFPs), to soil and water
conservation, employment, mitigation of climate
change, conservation of biological diversity,
tourism and recreation, and cultural and spiritual
values, among others. Different forests vary in
their ability to provide these goods and services,
and the various stakeholders place different values
on them.
Two of the environmental services provided by
forests – the mitigation of climate change through
carbon sequestration and the conservation of
biological diversity – are discussed in considerable
detail in the relevant chapters of Part II. The
following section, therefore, concentrates on forest
goods, in particular industrial wood, while
touching briefly on woodfuel and NWFPs.
Production and consumption of forest products
10
Markets for forest products over the past two to
three years were characterized by considerable
variation, volatility and uncertainty. Many
changes were driven by normal market factors,
such as fluctuating supply and demand
influenced by changing economic conditions.
Others appeared to be more permanent changes
influenced by globalization trends and
environmental and social pressures.
Estimates by FAO (2000b) show that global
production of total roundwood
11
reached 3 335
million m
3
in 1999. Just over half of this was
woodfuel, about 90 percent of which was
produced and consumed in developing countries.
On the other hand, industrial roundwood
production, totalling 1 550 million m
3
in 1999, was
dominated by developed countries, which together
accounted for 79 percent of total global
production. Industrial roundwood production
varied from year to year during the 1990s, but the
overall trend was relatively flat. This was a
10
Note that, within the overall trends indicated here, there
were considerable differences between countries and regions,
with associated changes in trade patterns and in product
relativities. Data sources for this section include FAO, 2000b;
FAO, 2000c; UN-ECE/FAO, 2000a; ITTO, 2000a; ITTO (various
years) Tropical Timber Market Report; and ITC, 1998.
11
At the global level, production approximates consumption,
although they may differ slightly in some years because of
changes in stock. Total roundwood consists of woodfuel
(mainly fuelwood and charcoal) and industrial roundwood.
Industrial roundwood either enters international trade directly
or is used in domestic processing for conversion into products
such as sawnwood, wood-based panels, paper and paperboard,
and pulp for paper.
14 STATE OF THE WORLD’S FORESTS 2001
significant change from the rapid growth that
occurred prior to 1990. Tropical production in 1999
represented a relatively small proportion of overall
global production of the various products: about
15 percent of world industrial roundwood
production, 14 percent of sawnwood, 15 percent of
wood-based panels, and 9 percent of paper and
paperboard.
Global production of individual products
increased in 1999 and 2000, after the dip in
production experienced by all of them except
paper and paperboard in 1997-1998. Sawnwood
production was up, but below its earlier highs;
wood-based panels and pulp were back to or near
their earlier highs; while paper and paperboard
products rose continuously to reach a new high.
The International Tropical Timber Organization
(ITTO) reported that, as of late 2000, tropical log,
sawnwood, veneer and plywood production by its
member countries was still below earlier levels,
and in some cases it was substantially lower.
Two main features of the period under
discussion were the significant difference in
market conditions between countries and the
rebound from the Asian crisis in 1997-1998. Some
markets (e.g. in North America and Europe) were
strong throughout the period, while others (in
China, Japan, the Republic of Korea and Thailand)
were significantly affected by the Asian economic
crisis and its after-effects.
Consumption of sawnwood, wood-based panels
and paper and paperboard products in North
America was buoyant throughout the period, with
consumption in 1999 about 6 percent above 1998
levels. Consumption in Europe rose by 3 percent
between 1998 and 1999.
The situation was less positive in many other
countries. The Asian economic crisis had affected
some Asian countries severely, and the impacts
were also felt outside the region, although to a
lesser degree.
12
Significantly, although the effects of
the crisis were disruptive in many countries, they
were less severe than expected, and the countries
most affected in 1997 and 1998 improved in 1999
and 2000. Business confidence returned and
demand recovered, lifting prices for most forest
products. The situation improved in China, Japan,
Malaysia and the Republic of Korea, among
others. Although market conditions in Japan (the
largest Asian importer) improved in 1999 and
2000, they remained subdued compared with the
standards of the mid-1990s, with imports still at
only three-quarters of the pre-1997 levels. China’s
situation was more mixed; its consumption of
sawnwood and wood-based panels fell in 1998 but
rose in 1999 and 2000, while paper and
paperboard consumption rose steadily throughout
the period. Latin America, although affected,
recovered quickly. Africa’s log exports, which had
increased substantially to Asia, fell and then rose
again, although not to the level of the peak year of
1997. While countries that had export markets in
Asia – such as Australia, Canada, Chile, New
Zealand and the United States – were affected to
varying degrees, they adapted more quickly than
anticipated. The main exception to the recovery
was Indonesia, which experienced continuing
difficulties.
Unlike in western Europe, demand was low in
many eastern European countries because of their
weak economic situation. A notable example was
the Russian Federation, which was severely
affected by internal economic problems in mid-
1998. These compounded difficulties that the
country had already been facing. With domestic
demand depressed, production and consumption
of all forest products remained below 1995 levels.
Although conditions continue to be difficult
overall, exports of some forest products, such as
logs and lumber, have increased recently,
particularly exports to China and Japan.
Of special note is the important impact that
China’s increasing consumption is having on
world consumption and production trends. China
is now the world’s second largest consumer of
forest products by value. By volume, it ranks
second in consumption of wood-based panels,
second for paper and paperboard products and
third for sawnwood.
As mentioned above, in December 1999 severe
windstorms in Europe felled the equivalent of six
months’ harvest for the region. The immediate
consequence was a sharp drop in prices of
12
For a detailed discussion of the crisis and its impacts,
see FAO, 1998c; UN-ECE/FAO, 1998.
15 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
industrial roundwood in many European
countries; for example, the price of many sawlog
grades fell by 20 to 100 percent. Price changes for
most other wood products were relatively limited:
sawnwood, panel and pulp prices showed little
change; secondary processed wood products, such
as furniture, cabinetry and joinery, were not
affected. Market-related efforts to adapt to the
situation varied, but they included measures to
reduce supply (by leaving wood in the forest or
reducing fellings in undamaged forests), spread
supply over a longer period (by storing harvested
roundwood) and increase demand by finding new
markets (e.g. for wood energy) or increasing
existing outlets (e.g. through raw material exports).
The longer-term impact on markets will depend
on the amount of the windfall actually harvested,
the success of storage programmes and, especially,
market demand in the region. Initial estimates are
that only 50 to 75 percent of the storm-felled
timber will reach the market.
Substitutions in various materials and products
have occurred in many regions. Markets for
reconstituted panels – particleboard, medium-
density fibreboard (MDF) and oriented strand
board (OSB) – have expanded rapidly and
captured some of the plywood and sawnwood
market. Some of the substitution has affected
tropical timber. For example, Japan has increased
its use of temperate softwoods, including
coniferous logs imported from the Russian
Federation, in the plywood sector, which is
traditionally the domain of tropical hardwoods.
Similarly, the growth of markets for reconstituted
panels has often been at the expense of tropical
plywood and sawnwood. There has been some
compensation, however; exports of secondary
processed products from tropical hardwoods have
grown, one example being furniture exports from
Malaysia.
Prices for many wood products, especially
tropical ones, were down substantially in 1998.
They have since partially recovered, but most are
still below the levels of the mid-1990s. Paper and
paperboard prices dropped considerably in 1998
and 1999, but recovered strongly in 2000. Prices
for tropical logs, sawnwood and plywood also
dropped sharply in 1998 and 1999. Although the
sharp decline in tropical log, sawnwood and
plywood prices in 1997-1998 was arrested, by mid-
2000 the prices for tropical plywood were still only
65 to 80 percent of those in January 1997 and
sawnwood prices were similar to their 1997 levels.
Log prices, however, were 15 to 20 percent above
their 1997 levels (ITTO, 2000c).
Trade in forest products
Trends in trade. Global trade in most products
followed a common trend: export volumes were
down in 1997 and 1998 but recovered in 1999 and
2000. In some cases, exports nearly regained the
highs of the mid-1990s. Trade in paper and
paperboard was an exception; it expanded
continuously over the period.
The share of total production exported increased
for all processed wood products. In 1999, about 27
percent of the production of sawnwood (up from
18 percent in 1990), 34 percent of wood-based
panels and paper and paperboard (up from about
25 percent), 20 percent of wood pulp (up from 16
percent), but only 5 percent of industrial
roundwood production (unchanged from 1990),
were exported. Many factors influenced this trend,
including the difficulties some countries had in
meeting their domestic demand, exchange rate
fluctuations, increasing production in some
countries with small domestic markets, increasing
globalization, and supply restrictions for
environmental reasons.
The effects of the Asian crisis were particularly
apparent in the tropical timber trade. Exports of
logs, sawnwood and wood-based panels
decreased in 1997 and 1998 and then recovered,
but not to earlier levels in all cases. (Exports in
1999 were more than 60 percent below the levels
recorded at the start of the decade.) Partial data
available for 2000 show further increases. Trade in
tropical sawnwood was less affected by the
downturn than trade in tropical logs.
Tropical timber products continued to account
for varying, but generally small, shares of the total
exports of different products: 20 percent of
industrial roundwood, 10 percent of sawnwood,
less than 10 percent of pulp and paper and
paperboard products, and 39 percent of wood-
based panels. The exception to this trend is
16 STATE OF THE WORLD’S FORESTS 2001
plywood; 71 percent of plywood exports are from
tropical wood.
A trend that continued over the period was the
changing relative export importance of different
forest products. Processed products represented a
higher proportion of total wood product exports
than previously. The shares of both wood-based
panels and paper and paperboard increased.
Paper and paperboard products now account for
approximately 52 percent of the value of global
forest product exports, and wood-based panels for
11 percent. Sawnwood has remained relatively
stable at 18 percent. Industrial roundwood’s share
of global exports by value, however, continued to
decline to reach its current level of about
5 percent. The share of wood pulp in total
exports also decreased, since importers have
moved to importing paper and paperboard
products.
An important trend for many countries has
been the increasing production and export of
secondary processed wood products (sometimes
called further-processed products or value-added
products). These include a wide array of products,
ranging from wooden furniture, builders’
woodwork (doors, window frames, flooring,
beadings and mouldings, etc.) to a variety of small
products (tools, brooms, bowls, boxes, statuettes,
etc.). This has been particularly important for
tropical countries, as exports of secondary
processed wood products were less affected than
those of unprocessed products.
A further point of note has been the increasing
importance of the Chinese market. Its expanding
consumption and lack of adequate forest
resources, as well as restrictions on its wood
supply, have contributed to a recent rapid increase
in its imports, a situation that is expected to
continue. China is now the world’s third largest
importer of primary forest products, after the
United States and Japan. China’s imports of forest
products reached about US$8 billion in 1999. The
volume of imports of many products has
expanded dramatically in recent years. In
particular, roundwood imports have risen, but
only to the level of the late 1980s. Sawnwood
imports have risen strongly, as have pulp, waste
paper, and paper and paperboard products. By
contrast, plywood imports have declined
significantly as China’s own production capacity
has expanded. Imports have shrunk back to the
level seen in the late 1980s.
Trade patterns have also been changing, largely
as a result of increased trade among developing
countries, especially between countries in the
Asian region. Trade patterns have also become
more diverse, and there has been increased
intraregional trade in other regions such as North
America. Changes in trade patterns have been
facilitated by the reduction of trade restrictions as
part of the global trend towards trade
liberalization (see Box 6). Some changes may be
short-term, while others may be more permanent,
such as the emergence of lower-cost producers,
growing numbers of suppliers with more
consistent or higher-quality products or greater
marketing expertise, and the reduced availability
of roundwood for some suppliers.
While trade liberalization is progressing at the
global level, some countries are making increasing
use of export restrictions such as bans, levies and
quotas
13
as a policy tool to address national
environmental or market problems. Bans or very
high export taxes are in place in countries as
diverse as Canada, Ghana, Indonesia, Mongolia,
the Philippines, the Sudan and the United States.
In some cases, total bans are imposed; in others,
bans are limited to certain species, certain regions
of a country or certain products (e.g. logs,
sawnwood, plywood, charcoal). The objectives also
vary. Some are imposed to assist the growth of
further processing – for example in Malaysia
14
– or
to protect domestic industry – as in Mongolia. In
other cases, the objective may be the protection of
threatened species, such as those listed in CITES
appendices.
The increasing use of export restrictions as well as
harvesting bans, together with the belief that they
can solve – or help solve – national environmental
and market problems, is perhaps a reflection of
13
As distinct from the harvesting bans, discussed in the section
Restrictions on timber harvesting, p. 10.
14
The Sabah state government placed a total ban on the export
of Selangan batu logs and sawnwood from 1 August 2000, in
order to ensure supplies for the furniture industry (Malaysian
Timber, Vol. 6, No. 2/2000).
17 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
Moves to reduce trade tariffs and non-tariff barriers received
considerable attention over the period. This came to a climax
at the World Trade Organization (WTO) discussions, held in
Seattle, United States in November 1999. A number of coun-
tries were proposing a new round of multilateral trade nego-
tiations, to start in 2000; others either opposed the idea or
opposed some of the issues proposed for inclusion. Among
other issues, the run-up to these trade talks focused attention
on the possible impacts of further trade liberalization for forest
products. Many concerns about the effect that any further
liberalization might have on the environment were raised by
environmental NGOs and were given widespread media at-
tention. Environmental NGOs considered that further liberal-
ization would increase consumption of forest products and thus
increase the pressure on forests. They also considered that
environmental tools, such as certification and ecolabelling,
would be weakened.
In addition, a number of developing countries felt that they
had not benefited much from previous reductions and were
concerned about some of the new issues suggested. As a result
of the lack of agreement – influenced only to a limited extent
by the demonstrations against WTO and trade liberalization
by civil society groups – new multilateral negotiations were
not agreed to
1
in many areas, including those of interest to
forestry. WTO and some regional fora are continuing to seek
a way forward on further trade negotiations, although the
impetus has been reduced somewhat by the lack of agree-
ment at Seattle.
Despite the failure to agree on a new round of trade ne-
gotiations, tariff reductions agreed to in the Uruguay Round
Agreements in 1994 continue to be implemented in both
developed and developing countries. Under this process, which
requires commitments to tariff reductions to be fulfilled by
2004, tariffs on many forest products have been reduced.
However, since tariff rates on products in the main developed,
importing countries were generally quite low before the Uru-
guay Round, changes in these markets have tended not to be
substantial. There have also been reductions in non-tariff
barriers, but their effects are more difficult to identify. Some
developing countries have made substantial tariff reductions,
although many rates still remain well above those on similar
products in developed countries. In addition, many of these
countries show clear evidence of tariff escalation – with higher
rates on secondary processed wood products than on products
such as logs and sawnwood. Tariff reductions have also been
accompanied by a general freeing up of import controls and
taxes in these developing countries. Of special note is the
fact that countries seeking to join WTO, such as China, have
been making such reductions in order to qualify for entry. These
changes will continue, with an overall trend towards increased
liberalization.
1
New negotiations on the Agreement on Agriculture, which does
not include forest products, had already been scheduled and are
proceeding.
many countries’ growing frustration with less direct
actions. In the light of the increasing interest in
these types of policy tool, there needs to be more in-
depth analysis and evaluation of their effectiveness
and of their economic, environmental and social
effects.
Trade and environment – impacts and
developments. Issues concerning trade and the
environment continue to be important and to
receive widespread attention. Concerns about
environmental issues are now being taken more
seriously than previously, and the environmental
shortcomings of forest management practices,
processing, distribution and utilization are
increasingly being recognized. This recognition has
resulted in greater efforts to address the problems,
although there is not complete agreement on what
the problems are, their degree of importance, or
how to solve them. Views continue to differ on
BOX 6
Trade liberalization
18 STATE OF THE WORLD’S FORESTS 2001
how far trade and environmental issues could, or
should, be mutually supportive; how their
linkages could be encouraged; and whether trade
or environmental bodies should predominate in
situations where conflicts arise.
The challenge of reaching agreement on many
of the trade-related matters was illustrated by the
difficulty that the WTO Committee on Trade and
Environment had in addressing issues such as
ecolabelling and certification, as well as by the
difficulty that governments had in reaching an
agreement on trade and environmental issues in
the Intergovernmental Forum on Forests (IFF) (see
Part III, p. 104, for information on IFF). In the case
of IFF, although some agreement was finally
reached, differences in views were evident in
discussions on market access, trade and
sustainable forest management, the relationship
between obligations under international
agreements and national trade measures, and
illegal trade.
Forest products certification – recent
developments. Certification has long been a
controversial issue concerning trade and the
environment. Producer countries and trade groups
have tended to highlight the trade-restrictive
aspects of the practice, while consumer countries
with strong environmental lobbies have stressed
its potential environmental benefits.
Over the past two years, the subject of
certification has assumed an even higher profile
and the potential importance of this practice has
become more widely recognized. Nonetheless,
both the extent and nature of its contribution to
encouraging sustainable forest management are
still far from clear. The growing acceptance of
certification probably has more to do with
questions of marketing and market access than
with any clear indication that it provides
substantial benefits for forest management in the
forests under most threat. The greatest interest in
certification has been shown by importing
countries, largely restricted to western Europe
(especially Germany, the Netherlands and the
United Kingdom) and to a lesser extent the United
States, as well as by exporting countries whose
main export markets are in these areas.
Despite the attention paid to certification, only a
small number of schemes are in operation and the
volume of timber covered by them, while
increasing, is still minor. Accurate statistics on the
area of forests certified and the volume of certified
wood entering the market remain difficult to
obtain, and the figures are often hard to interpret.
Nonetheless, the area of certified forests seems to
be growing (see Box 7). Depending on how the
“area certified” is defined, the total global area of
certified forests may be around 90 million ha.
15
This represents only about 2 percent of the world’s
total forest area. Notably, most certified forests are
located in a limited number of temperate
countries, and not in tropical countries where
unsustainable timber harvesting practices are a
contributing factor to forest degradation.
Although the area of certified forests cannot be
directly correlated with the quantity of timber
originating from them, a growing volume of wood
from such forests is reaching the market. This
growth in volume is occurring at a slower pace
than the increase in certified forest area, and it is
still minor in regional or global terms.
Furthermore, most of the trade in such wood is
concentrated in a few markets and market
segments.
Significant developments related to certification
have occurred in some important market
segments. An increasing number of large retail
“do it yourself” chains in Europe and the United
States and some major house-builders in the United
States have announced that they will favour certified
wood products in the future. Buyers’ groups
(groups of retailers who have committed themselves
to trading only in products from certified sources –
and mainly with Forest Stewardship Council [FSC]
certification) have expanded, with notable
commitments recently from some large retailers in
Brazil. Some of these retailers have also now ceased
to specify that they market only FSC-certified
products. This reflects the fact that they are unable to
obtain sufficient wood under the FSC certification
15
Excludes areas certified to the ISO 14001 standard of
the International Organization for Standardization, unless
they have also been certified to a specific forest
management certification system.
19 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
Following are some recent developments in the area of
forest certification processes:
1
The area certified by accredited certifiers of the Forest
Stewardship Council (FSC) has reached 22.0 million ha,
2
up from the 10.3 million ha reported for 1998 in the State
of the World’s Forests 1999. Most of this is in Europe and
the United States. Sweden and Poland, alone, account for
61 percent of the total, and the United States for another
11 percent.
Outside the FSC process there has been an even more
rapid increase: 21.9 million ha of Finland’s forests (95 per-
cent of the country’s forest area) have been certified under
the Finnish Forest Certification System; a further 6.9 mil-
lion ha in Norway and Sweden have been certified under
national certification schemes; and some 44.0 million ha
of forest land in Canada has been certified according to
the ISO 14001 standard of the International Organization
for Standardization.
3
This last certification procedure in-
dicates that the companies involved conform to the ISO
14001 Environmental Management System standard. Al-
though it does not provide for forest management certi-
fication, it can be seen as a step towards gaining certi-
fication (Bass and Simula, 1999). Many of the Canadian
companies adhering to this standard are now working to-
wards the additional requirements needed to achieve
Canadian Standards Association (CSA) certification. This
is an ISO-based system that includes forest management
performance requirements. Some 5 million ha are already
reported to have been certified according to the CSA
standard.
A new European certification process, the Pan-European
Forest Certification Framework (PEFC), has been established
to provide a framework for voluntary forest certification and
a mechanism for mutual recognition among different
European national systems. National PEFC governing bod-
ies have been established in 15 European countries.
The Indonesian Ecolabelling Institute (LEI) has developed
criteria and indicators for the auditing of forest manage-
ment on logging concessions, as well as the ecolabelling
of products from these concessions. The LEI system is based
on the International Tropical Timber Organization (ITTO)
guidelines for sustainable forest management. A memoran-
dum of agreement has been signed with FSC, and this may
lead to joint certification by the two processes.
Malaysia has formed a National Timber Certification
Council (NTCC) which is establishing a national set of
criteria and indicators, also based on the ITTO framework.
It has entered into discussions and trials with other orga-
nizations to widen the acceptance of its system.
The area covered by the American Forest and Paper
Association’s Sustainable Forestry Initiative, by which its
member companies commit themselves to move towards
sustainable forestry, has continued to expand. Although
this is not a certification process, the principles and guide-
lines that companies commit themselves to are now being
used as a basis for certification by independent bodies.
Some 12 million ha of forest have been verified by third-
party auditors and 20 million ha are currently reported to
be undergoing assessment.
1
As at early 2001.
2
As at 30 March 2001, according to the FSC Web site.
3
Reported on the Canadian Sustainable Forestry Certification Coalition
Web site at: www.sfms.com (April 2001).
BOX 7
Certification processes
20 STATE OF THE WORLD’S FORESTS 2001
system to meet their sales needs, and it is also a sign
of acknowledgement that many different
certification processes have merit and may be
acceptable alternatives (see Box 8).
Two other areas of recent development are in
the non-wood forest product and the pulp and
paper sectors. Certification schemes are starting to
certify certain NWFPs. A description of the types
of schemes used is given in Box 9. A number of
pulp and paper companies have certified their
forests and market their products as certified. This
has been made simpler by changes in certification
rules and procedures that allow products with less
than 100 percent certified virgin wood content (i.e.
also containing waste, recycled or reused wood) to
be certified.
Despite these positive trends, many important
certification issues remain unresolved. These
include: the lack of a clear link between
certification and improved forest management
where deforestation is greatest – in developing
countries; the fact that there is still little evidence
of the positive or negative market impacts of
certification;
16
and the continuing possibility that
certification will, intentionally or unintentionally,
act as a non-tariff barrier to trade and discriminate
against those unable or unwilling to become
certified. Regardless of the uncertainties, interest in
certification continues to grow and the area of
The following points indicate that mutual recognition of vari-
ous certification schemes is increasing.
A decision has been taken by B&Q, a leading home
improvement chain in the United Kingdom and a member
of FSC and of the United Kingdom WWF1995+Group, to
accept Finnish timber certified under the Finnish Forest
Certification System. This national certification process has
been developed in competition with the FSC system in
Finland.
A wide range of interest groups in the United Kingdom,
including the UK Forestry Commission, timber growers’
associations, the timber trade, retailers and a number of
NGOs, have reached an agreement on the recognition of
the United Kingdom Woodland Assurance Scheme
(UKWAS), a certification standard for forests in the United
Kingdom.
PEFC is actively encouraging mutual recognition between
different European national systems and also has provisions
for recognizing non-European certification schemes.
The International Forest Industry Roundtable, an informal
network of forest industry associations from 16 forestry
nations, is developing an international framework for
mutual recognition between different performance standards
and certification systems; and the Confederation of Euro-
pean Paper Industries (CEPI) is supporting mutual recogni-
tion efforts through the development of a comparative
matrix of different certification systems as an educational
tool for its members and for pulp and paper customers.
The American Forest and Paper Association’s Sustainable
Forestry Initiative and the American Forest Foundation’s Tree
Farm System, which is the oldest system of certification of
forests in the United States and has 66 000 non-industrial
private forest landowner members, have signed a mutual
recognition agreement under which they recognize each
other’s standards for sustainable forest management. About
10 million ha are certified under the Tree Farm System.
BOX 8
Mutual recognition of certification processes
16
See, for example, Hansen, Forsyth and Juslin, 2000;
Pajari, Peck and Rametsteiner, 1999.
21 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
Although some existing certification schemes are starting to
certify specific non-wood forest products (NWFPs), there is
considerable variation in what is being certified and some
misunderstandings as to what certification of an NWFP ac-
tually means. A common assumption is that certification of
an NWFP is a guarantee that it has been produced in a
sustainable way. This may not, in fact, be the case. There
are four different certification approaches for NWFPs:
Certificate of origin. This is used for a variety of products,
including food products. It guarantees only that a given prod-
uct comes from a certain region or area – not necessarily that
it has a certain standard of quality. An example is the DOC
(Denomination of Controlled Origin) label used for wines,
cheeses and other products by many countries. Certain high-
value edible NWFPs, such as truffles and morel mushrooms,
are increasingly being certified through such documentation
of origin systems.
Product quality standards. Organic certification is being used
for an increasing number of products, from food to textiles.
It certifies that the full production sequence of a product (from
the farm until processing) has respected the criteria for or-
ganic agriculture (which may differ according to the certify-
ing agency). Because NWFPs are gathered in forests and their
production does not entail the use of fertilizers or pesticides,
they are usually considered organic products by definition.
Pine nuts, mushrooms, herbs and other products gathered in
forests are now being increasingly and successfully commer-
cialized as organic food products. Organic certification per
se, however, does not guarantee that these products have been
obtained from sustainably managed forests.
Social certification. This involves documentation of certain
social aspects of production, assuring that the labour condi-
tions for production are acceptable, for example, or that the
benefits are equitably distributed to those involved in produc-
tion. Social-based certification schemes have existed for a long
time for agricultural and manufacturing products (e.g. for
soccer balls certified to have been produced without child
labour), but they are relatively new for NWFPs. Mechanisms
now exist to ensure that the returns from the sale of NWFPs
produced by indigenous peoples or by local cooperatives accrue
to the producers. Fair trade associations and NGOs are active
in this field.
Forest management certification. Forest certification schemes
based on the standard of forest management are now being
extended to include NWFPs. This is much more complex than
simply certifying for timber, as the same forest area may have
to be assessed for one or more NWFPs, which can have different
requirements. It is possible, for example, for a forest to be
managed for timber in a sustainable way while, at the same
time, its NWFP resources are being overharvested, and vice
versa.
BOX 9
Certification schemes for non-wood forest products
forests being certified is increasing. Certification
has begun to be seen as a mainstream activity,
and changes and adjustments will continue for
some time yet.
Developments in forest industry technologies
Recent developments in the pulp and paper
industry include increased investment in modern
technologies that improve the environmental
performance of manufacturing plants, for example
pollution control equipment. Developments are
evident in energy generation, such as the use of
organic fuel sources (e.g. black liquor and wood
residues). Apart from bringing economic and
environmental benefits, such technologies
contribute to reducing greenhouse gas emissions,
as agreed to by many governments under the UN
Framework Convention on Climate Change.
Producers of solid wood products continue to
adapt to changing raw materials. Large-diameter
22 STATE OF THE WORLD’S FORESTS 2001
logs are becoming scarcer as natural forests
become less available and increasing quantities of
plantation wood enter the market, and a wider
range of species are being used. These trends are
giving impetus to the production of engineered
wood products, most notably laminated veneer
lumber (LVL), glue-laminated timbers and
products based on wood fibres, such as OSB.
Production of OSB in Europe has been expanding
rapidly and taking some of the market share from
the market leader – particleboard. OSB production
also continues to expand rapidly in the United
States. Other developments include new surfacings
and coatings that allow external uses as well as
use in environments with high temperatures or
humidity levels.
The plywood industry, particularly in tropical
countries, has taken only limited advantage of the
new technologies and improvements in
equipment. There are at least three main reasons
for this: plywood markets have continued to
decline, mainly as a result of the recent Asian
economic crisis; the size of logs available to the
industry is decreasing; and there has not been a
particularly favourable climate for investment in
processing.
Environmental pressure, the effects of land use
change and other factors have reduced the
economic availability of forest-based raw materials
to many processors. As a result, innovative ways
of expanding fibre
17
supply have emerged.
Industry has been responding to changes in wood
supply by using short lengths and offcuts to form
products, and by making greater use of residues
and waste. Another development is the increase in
outgrower schemes, promoted by private
companies and implemented in close partnership
with local communities or small landowners. Yet
another is investment in plantations in other
countries, as is the case of Chinese, Japanese and
North American companies investing in
plantations in Southeast Asia, Oceania or South
America. In an effort to reduce pressure on natural
forests, investment in small-scale plantations has
also been promoted in many countries, often with
government incentives. The success of these
initiatives still needs to be proved. In the past,
many were created without proper consideration
of the final use of the resource, the analysis of
potential markets or the creation of favourable
conditions for industrial development.
THE CHANGING INSTITUTIONAL
FRAMEWORK FOR THE FOREST
SECTOR
There is increasing recognition that efforts in
economic development, poverty alleviation,
environmental protection and social equity cannot
be successful in the absence of appropriate
governance structures and processes. Governance
systems define the relationship between
government, civil society and the private sector.
Over the past decade, two major and seemingly
contradictory shifts have been taking place:
globalization on one hand, and decentralization on
the other. A nationally based, centrally controlled
world structure is being affected by global
networks and by freer flows of labour, capital and
information between countries. The centre of
power and authority is also being shifted as a
result of more pluralistic institutional
arrangements, the devolution of responsibilities to
a local level and the adoption of participatory
processes. As a result, the roles and responsibilities
of government, the private sector and civil society
are being realigned and the relationships between
them are changing. The following section
discusses how these changes are affecting the
forest sector.
International development agencies lie outside
the triangle of governance formed by government,
the private sector and civil society, yet they often
have a significant impact on development policies,
approaches and programmes. The role of these
agencies and the recent change in their approaches
are also discussed.
Community-based forest management
The involvement of communities in forest
management is now a significant feature of
national forest policy and practice and of
internationally supported forestry programmes
17
Fibre includes wood and other fibrous raw material, such as
recovered paper and annual plants, used for the manufacture
of wood and paper products.
23 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
throughout the world. National forestry agencies
are commonly undergoing decentralization,
restructuring and downsizing. Faced with
inadequate financial and human resources,
governments are increasingly turning to local
communities to assist them in protecting and
managing state-owned forests. For forestry
agencies, greater reliance on resources at local
community levels is a potential solution to a
growing resource problem.
Large-scale community-based initiatives began
in South Asia in the 1980s. Areas placed under
community-based management were then, and
still are, those that are usually perceived or
classified as degraded and not of commercial
interest. Under Joint Forest Management (JFM) in
India, for example, the forests given to
communities to manage are usually degraded,
while the more productive forests remain under
the control of the state. The community provides
labour and protection to improve the degraded
areas and to allow the forest to regenerate. The
state receives a revitalized forest and a large
share of the income from the timber and other
resources. The community gains access to areas
that were denied (officially) for the gathering of
NWFPs and a portion of the income generated
from the sale of timber. This form of community
involvement in management, i.e. user-centred
cooperation, defines local interests as those of
user interests.
Attention has now shifted to recent initiatives in
community-based natural resource management
taking place in Africa. Policy and legal changes
and implementation on the ground are gaining
momentum in this region. The approach being
taken is considerably different from the user-
centred model just described for Asia. The
emerging trend in Africa, especially in the Gambia
and the United Republic of Tanzania, is to support
the custodial interests of the community. These
derive more from history, locality and socio-
environmental interests than from product use.
The underlying assumption of this approach is
that forest-adjacent communities have a custodial
interest in ensuring that the forest or woodland
does not become degraded. The intention is to
make local communities stakeholders of the forest,
not simply users of its products. As with other
forest managers, the community-based stakeholder
must address a range of forest management goals,
including forest protection, production and
poverty alleviation, or economic benefits.
Community-based management systems are
still very much in a stage of evolution. The
transformation of forest management to a
multiple stakeholder, community-based approach
will not be easy. In fact, it is a major challenge in
many places. There is little experience in
collaborative management in which (multi-
interest) stakeholders work effectively together in
decision-making and implementation. There will
be a temptation to develop “models” to serve
as blueprints for large-scale implementation,
even though participatory forest management
requires flexible decision-making and planning at
the local level.
Important lessons are emerging from
experiences in community-based management in
both Asia and Africa that can assist current and
future initiatives:
Secure tenurial arrangements and a clear
understanding of roles and responsibilities are
of central importance. Tenurial rights entail
secure, long-term access, enabled by policies
that recognize these local rights while also
providing the holders with legal and
regulatory support in protecting them –
against the forest industry, state agencies and
encroachment by other population groups, for
example.
Communities have to perceive that they will
gain economically if their long-term
commitment is to be secured. The incentives
would be far greater if they received more
productive forests, rather than degraded ones,
to manage. While economic benefits are
critical, other benefits are also important. In the
Gambia, it has been noted that, while the
prospect of having relatively unhindered
access to the forest and its benefits is
important, the driving force behind
community involvement has been the
realization of the environmental benefits of
forests and the satisfaction derived from the
feeling of ownership (FAO, 2000e).
24 STATE OF THE WORLD’S FORESTS 2001
Increasing civil society involvement
Increased public involvement in forestry issues is
evident in all regions. Civil society organizations
are increasingly spearheading action in support of
conservation and sustainable management of
forests. Interventions often involve raising
awareness of problems and increasing access to
information but, increasingly, they include direct
involvement in natural resource management or
legal action. As democratization and
decentralization trends continue worldwide and
new technologies improve communication, the
“environment” for successful civil society action
improves. Open and free media and an impartial
judiciary, whose decisions are respected and
implemented, are important to support and
encourage civil society initiatives.
A small sample of such civil society action
includes the following.
A public interest litigation, initiated in 1996 by
concerned citizens in India, resulted in the
highest court in the country banning all
fellings from forests, except in accordance with
the principles laid down in the management
plans. In taking this decision, the court
adopted a broader meaning of forests than the
very restrictive legal definition used in the
Indian Forest Act.
In 1999, the Maisin tribe in Papua New Guinea,
which has customary rights over an area of
forest, took a foreign company to court to stop it
from clearing the forest for an oil-palm
plantation.
In December 1999, the Cambodian
Government asked Global Witness, a United
Kingdom-based NGO that was instrumental in
articulating concern over illegal logging in
Cambodia, to be an independent monitor of
the country’s forest sector (see also Part II,
Illegal activities and corruption in the forest
sector).
The Mount Tamalpais Declaration was
launched in May 2000 as an NGO initiative to
“express extreme concern about the role
envisioned for tree plantations in helping
industrialized countries meet their
commitments to reduce greenhouse gas
emissions under the Kyoto Protocol”. Dozens
of NGOs around the world have signed the
Declaration, expressing concern for the
potential negative and social impacts of
plantations.
In July 2000, Greenpeace volunteers boarded a
Russian freighter loaded with illegal timber
and destined for Japan. They chained
themselves to the logs to draw worldwide
attention to illegal logging in the Russian
Federation’s far eastern region.
The Belize Audubon Society (BAS) manages
one natural monument, two wildlife
sanctuaries, two national parks and one nature
reserve as part of a management contract with
the Government of Belize. BAS also manages a
private nature reserve. These seven areas cover
approximately 60 000 ha.
In El Salvador, the private organization
SalvaNATURA manages the El Imposible
National Park. SalvaNATURA has prepared a
management plan and it runs environmental
education programmes and promotes
economic activities for people living around
the park.
The changing role of the private sector
The private sector in forestry is undergoing
structural changes, owing in part to the effects of
globalization. Larger holdings have been formed,
especially in the pulp and paper sector.
Companies have joined forces to rationalize their
operations, seek economies of scale or adjust to
varying economic relationships.
18
Takeovers are
increasing, and companies are becoming more
vertically and horizontally integrated. These
changes are occurring mainly among large
companies. Small and medium-sized companies in
many countries are not involved in this process,
and are often increasingly disadvantaged in
international trade.
The role of the private sector in forestry is also
changing. The private sector now owns or
controls significant forest areas worldwide. In the
past, private enterprise focused more exclusively
on the economic dimensions of forest
18
For example, country differences in prices, labour costs,
demand environments and exchange rates.
25 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
development. Now, in the period following the
United Nations Conference on Environment and
Development (UNCED), the private sector is
increasingly being held accountable for
environmental and social aspects of forestry.
This greater accountability has been determined
to some extent by the more stringent approach
adopted by many governments in regulating their
forest sectors, in part to ensure compliance with
international environmental standards and
commitments. Other influences include the freer
flow of information, greater access to the media by
advocacy groups and a greater degree of
international pressure. Market pressure, for
instance from competing products (plastics and
metals), is also a factor.
The private sector must now consider
environmental issues beyond the traditional task
of controlling pollution from processing plants.
Governments have increasingly turned over
responsibility for many activities to private
concerns through the privatization of state-owned
enterprises or changed concession agreements.
Many such moves have been aimed at
encouraging economic efficiency (see Box 10) by
handing the decision-making responsibility over to
the private sector – within a context of strict
guidelines or restrictions set by governments and
with penalties for non-performance.
These factors are influencing the private sector,
its level of concern and responsiveness, and the
base of its decision-making (as global companies
make decisions on a regional or global basis). This
reflects the tendency of governments to shift from
being active participants in forest management
and processing, to being the developers and
arbiters of regulations and standards affecting the
sector. Several governments have begun to
devolve direct managerial responsibilities for
forests to the private sector through the process of
privatization – sometimes of forests but more often
of services.
The privatization of forests and resource
reallocation have been undertaken to varying
degrees by several countries, notably Australia,
Chile, China, New Zealand and Viet Nam. There
has been an increase in community-based
management (but not ownership) of forests in
Some of the main reasons behind privatization in the forest
sector are:
the inappropriateness of direct government involvement
in commercial forestry;
improved efficiency through the separation of commercial
forest activities from non-commercial activities;
improved operational transparency;
revenue generation from the sale of state forest assets;
increased efficiency of national forest industry structures;
a reduced burden on public funds;
improved access to development capital.
BOX 10
Common rationales for privatization
countries of South Asia, in the Gambia, the
Philippines and the United Republic of Tanzania,
to name a few. A far wider group of countries,
especially across Africa, Latin America and central
and eastern Europe, are currently examining full
or partial privatization options. Large-scale forest
privatization has, to date, been almost exclusively
in the domain of plantation forests. In general, this
is because plantations are often perceived to have
fewer cultural and ecological values that merit
government protection.
The private sector is increasingly recognizing
that there are benefits to be gained from being
regarded as a good corporate citizen. This has led
to some companies voluntarily adopting
environmentally and socially acceptable practices
rather than having these prescribed and enforced.
The merging of some interests, or at least a
greater willingness to work together, can be seen
in efforts to encourage the consumption of wood
from sustainably managed sources as a preferred
material. Both NGOs and industry are promoting
wood consumption under this banner. More and
more, companies are collaborating on many
issues. For example, the International Forum of
Forest and Paper Associations, which has a
membership of about 27 countries, has recently
26 STATE OF THE WORLD’S FORESTS 2001
focused on climate change and trade liberalization
issues. The private sector is now also working
proactively with communities and environmental
groups to achieve mutually acceptable solutions
to problems and to establish mutually beneficial
projects.
Changing emphases of international development
agencies
International development assistance in the forest
sector has played an important role in supporting
countries’ efforts in the conservation and
sustainable development of their forests. Over
time, both the priority areas for assistance in
forestry and the means of implementing projects
and programmes have changed. Today, increased
emphasis is being placed on forest planning efforts
(e.g. through national forest programmes – see
Part III, p. 114) and national capacity building in
the forest sector. Participatory approaches,
community-based management and equity and
gender issues are now common elements of
implementation strategies.
The evolution in approaches to international
forestry assistance over the past 30 to 40 years can
be seen as consisting of the following phases:
i) industrial forestry; ii) social forestry;
iii) environmental forestry; and iv) sustainable
management of renewable natural resources
(Persson, 1998). It appears that the direction may
be shifting again, this time to the use of forests for
poverty alleviation.
The adoption of the international development
target of halving global poverty by the year 2015
(DFID, 2000a) and the commitment to the 1996
World Food Summit goal of halving the number
of the world’s hungry by the same year (FAO,
1997c) have refocused or changed the mandates of
multilateral organizations, bilateral agencies and
international centres. This emphasis is reflected
strongly in the mission and vision statements of
these organizations, examples of which are
provided in Box 11.
Poverty is not just a lack of food or income. A
current development approach that attempts to go
beyond income and food to include
multidimensional characteristics and causes is that
of “sustainable livelihoods”. A livelihood
Food and Agriculture Organization of the United Nations
(FAO)
Mission: “Helping to build a food-secure world for present
and future generations”.
Goals include: reducing food insecurity and rural poverty, and
conserving and enhancing the natural resource base.
Forestry mission: “To enhance human well-being through
support to member countries in the sustainable management
of the world’s trees and forests”.
International Centre for Integrated Mountain Development
(ICIMOD)
ICIMOD’s mandate is clearly focused on poverty reduction
and sustainable livelihoods of mountain people.
Goals include: “improving the well-being of mountain
people” and “economically and environmentally sound
mountain ecosystems”.
International Centre for Research in Agroforestry (ICRAF)
Goals include: “... to improve human welfare by alleviating
poverty, increasing cash income, especially among women,
and improving food and nutritional security ...”.
International Fund for Agricultural Development (IFAD)
Vision: “IFAD should be the Leader in showing the way and
galvanizing energies to eradicate rural poverty and hunger,
and to unleash, through their own participation, the capaci-
ties of our clients: poor rural people.”
World Bank
Mission: “To fight poverty with passion and professionalism
for lasting results” and “to help people help themselves and
their environment by providing resources, sharing knowledge,
building capacity, and forging partnerships in the public and
private sectors”.
BOX 11
Statements of goals and missions of selected
international organizations
27 PART I THE SITUATION AND RECENT DEVELOPMENTS IN THE FOREST SECTOR
comprises the capabilities, assets and activities
required for a means of living. A livelihood is
sustainable when it can cope with and recover
from stresses and shocks, and maintain or enhance
its capabilities and assets, both now and in the
future, while not undermining the natural resource
base (Carney, 1998).
Forests are an important form of natural
capital. Forest-dependent people constitute a
significant portion of the world’s poor. A recent
estimate is that “one out of four of the world’s
poor depend directly or indirectly on forests for
their livelihood” (World Bank, 2000a), although
the nature of the dependence varies (Shepherd,
Arnold and Bass, 1999).
Sustainable use of natural resources has a direct
impact on the improvement of natural capital.
While all people affect the environment, the rich
generally have a disproportionately higher impact
and the poor tend to be the most vulnerable to
the effects of environmental degradation (UNEP/
NASA/World Bank, 1999). It is the poor who
benefit most from being able to continue to have
access to forest products, but they may be faced
with a diminishing resource (owing to factors
such as population growth or restrictions to
resource access) and a declining capacity to
exploit it.
The current pattern of forest dependence by
people who are unable to obtain any, or sufficient,
income from agriculture or wage employment is
likely to continue. As a result, it will be necessary
to identify, develop and promote the economic
values of forests. Where forest products have an
important supplementary and “safety net” role,
users need security of access to the resources
(Byron and Arnold, 1999). These will be key issues
in the implementation of development assistance
efforts in forestry that adopt a sustainable
livelihoods approach. ◆