| United Nations | E/CN.17/IPF/1997/2 |
Economic and Social Council
Distr. GENERAL
11 December 1996
ORIGINAL: ENGLISH
COMMISSION ON SUSTAINABLE DEVELOPMENT
Ad Hoc Intergovernmental Panel
on Forests
Fourth session
New York, 10-21 February 1997
Report of the Ad Hoc Intergovernmental Panel on Forests
on its third session
(Geneva, 9-20 September 1996)
CONTENTS
Page
INTRODUCTION........................................................... 3
I. ELEMENTS FOR FURTHER NEGOTIATION AT THE FOURTH SESSION OF THE
PANEL............................................................ 6
A. Programme element I.1: Progress in national forest and land-
use plans.................................................... 6
B. Programme element I.2: Underlying causes of deforestation
and forest degradation....................................... 13
C. Programme element I.3: Traditional forest-related knowledge. 18
D. Programme element I.4: Fragile ecosystems affected by
desertification and the impact of airborne pollution on
forests...................................................... 26
E. Programme element I.5: Needs and requirements of countries
with low forest cover........................................ 32
F. Programme element II: International cooperation in financial
assistance and technology transfer........................... 36
G. Programme element III.1 (a): Assessment of the multiple
benefits of all types of forests............................. 47
H. Programme element III.1 (b): Methodologies for proper
valuation of the multiple benefits of forests................ 51
I. Programme element III.2: Criteria and indicators for
sustainable forest management................................ 55
J. Programme element IV: Trade and environment in relation to
forest products and services................................. 61
K. Programme element V.1: International organizations and
multilateral institutions and instruments.................... 70
L. Programme element V.2: Contribution to consensus-building
towards the further implementation of the Forest Principles,
including appropriate legal arrangements and mechanisms
covering all types of forests................................ 74
II. ADOPTION OF THE REPORT OF THE PANEL ON ITS THIRD SESSION......... 80
III. ORGANIZATIONAL AND OTHER MATTERS................................. 81
A. Opening and duration of the session.......................... 81
B. Election of officers......................................... 81
C. Agenda and organization of work.............................. 81
D. Attendance................................................... 82
Annexes
I. ATTENDANCE....................................................... 84
II. DOCUMENTATION BEFORE THE PANEL AT ITS THIRD SESSION.............. 88
INTRODUCTION
1. In accordance with the programme of work agreed upon at its first
session (E/CN.17/IPF/1995/3), the Ad Hoc Intergovernmental Panel on Forests at
its third session continued its consideration of the programme elements of
categories I to IV and programme element V.1. It held an initial discussion
on programme element V.2.
2. The objective of the third session of the Panel was to produce a
document containing elements to be used by the Panel at its fourth session in
preparing its final report to the Commission on Sustainable Development. The
text of that document is contained in section I below, entitled "Elements for
further negotiation at the fourth session of the Panel". All these elements
are open for further discussion and negotiation, with a view to arriving at a
general agreement on all conclusions and proposals for action. The Panel will
submit its final report to the Commission at its fifth session, in 1997.
3. The Panel agreed that during its fourth session it would:
(a) Continue and finalize negotiations on the text of its report to the
Commission, using the elements for conclusions and proposals for action
emanating from the third session;
(b) Integrate in the text additional proposals and inputs, including the
results of inter-sessional activities that have taken place since its third
session, as well as proposals for action under programme elements V.1 and V.2;
(c) Rationalize the structure of its final report, if appropriate (i.e.,
agree on deletion of possible duplicative recommendations in various parts of
the text and find the most appropriate place to reflect such a recommendation
in the report). In this connection, the Panel requested the Co-Chairmen, in
consultation with the Bureau, to make appropriate proposals.
4. The discussions during the third session of the Panel were based on the
results of the work carried out at the second session, held at Geneva from 11
to 22 March 1996 (see E/CN.17/1996/24), reports of the Secretary-General on
all the programme elements included in the Panel's mandate and the outcome of
inter-sessional meetings and activities organized by Governments and
organizations in support of the Panel's work programme, as well as on other
inputs and submissions to the session, including those from non-governmental
organizations.
5. The Panel expressed its appreciation to the international organizations
that are members of the informal high-level Inter-Agency Task Force on
Forests, namely the Food and Agriculture Organization of the United Nations
(FAO), the United Nations Environment Programme (UNEP), the United Nations
Development Programme (UNDP), the World Bank, the secretariat of the
Convention on Biological Diversity, the International Tropical Timber
Organization (ITTO) and the United Nations Secretariat, as well as to all
other international organizations that actively contributed to the preparation
of the reports of the Secretary-General submitted to the Panel. The Panel,
however, expressed its concern that most of the reports were not available in
all official languages by the time the session opened and that some reports
were still not available in all official languages when the session closed.
6. The Panel welcomed the contribution of the Convention on Biological
Diversity to its discussions. It requested the secretariat of the Panel to
provide information on progress made by the Panel to the third meeting of the
Conference of the Parties to the Convention, so as to continue the exchange of
information between the Panel and the Conference of the Parties.
7. The Panel expressed its appreciation to the organizers of various
inter-sessional meetings and activities that made a valuable contribution to
the preparation of the reports for the Panel and to the deliberations at its
third session, namely:
International Conference on Certification and Labelling of Products from
Sustainable Managed Forests, hosted by the Government of Australia
(Brisbane, Australia, 26-31 May 1996);
Workshop on Financial Mechanisms and Sources of Finance for Sustainable
Forestry, sponsored by the Governments of Denmark and South Africa and
UNDP (South Africa, 3-7 June 1996);
FAO Expert Meeting on the Preparation of Forest Resources Assessment
2000 (Kotka III), hosted by the Government of Finland (Kotka, Finland,
10-14 June 1996);
Expert Consultation on Implementing the Forest Principles: Promotion of
National Forest and Land-use Programmes, sponsored by the Government of
Germany (Feldafing, Munich, Germany, 17-21 June 1996);
International Expert Meeting on the Rehabilitation of Degraded Forest
Ecosystems, sponsored by the Governments of Cape Verde, Portugal and
Senegal, the European Community and FAO (Lisbon, 24-28 June 1996);
Meeting entitled "Overview of International Organizations, Institutions
and Instruments Related to Forests", sponsored by the Governments of
Peru and Switzerland (Geneva, 24-28 June 1996);
Expert Working Group Meeting on Trade, Labelling of Timber and
Certification of Sustainable Forest Management, sponsored by the
Governments of Germany and Indonesia (Bonn, 12-16 August 1996);
Intergovernmental Seminar on Criteria and Indicators for Sustainable
Forest Management, sponsored by the Government of Finland (Helsinki,
19-22 August 1996);
Study entitled "Long-term Trends and Prospects in Supply and Demand for
Wood Products and Possible Implications for Sustainable Forest
Management", sponsored by the Government of Norway.
8. Furthermore, the Panel expressed its appreciation to those Governments
and organizations that made generous voluntary contributions to support the
work of the Panel and its secretariat, in particular to the Government of
Switzerland, whose contribution to make it possible to cover additional costs
resulting from the Panel's decision to extend the duration of its third
session and divide its work between two in-session working groups.
9. The Panel welcomed the inter-sessional meetings that were being
organized as an input to its fourth session, namely:
Expert Meeting on Sustainable Forestry and Land Use: The Process of
Consensus-building, sponsored by the Governments of Sweden and Uganda
(Stockholm, 14-18 October 1996);
International Workshop on Integrated Application of Sustainable Forest
Management Practices sponsored by the Governments of Canada, Japan,
Malaysia and Mexico, FAO and ITTO (Kochi, Japan, 22-25 November 1996);
International Meeting of Indigenous and other Forest-dependent Peoples
on the Conservation and Sustainable Management of Forests, supported by
the Governments of Colombia and Denmark (Leticia, Colombia,
9-13 December 1996);
10. The Panel, bearing in mind the amount of work that remained to be
finalized at its fourth session and the complexity of the issues it had to
address in order to reach a general agreement on the text of its final report
to the Commission, reiterated its recommendation to extend its fourth session
from one week to two weeks and to provide for additional meetings so that two
parallel working groups could be established during the session.
11. The Panel emphasized the need to ensure that all the documents for its
fourth session were available in all official languages in due time.
I. ELEMENTS FOR FURTHER NEGOTIATION AT THE FOURTH SESSION
OF THE PANEL */
(*/ Text in brackets [] is suggested for deletion or replacement. Text in
bold face is additional suggested text.)
A. Programme element I.1: Progress in national forest
and land-use plans
Mandate
1. As defined by the Commission on Sustainable Development, the aim of
programme element I.1 is to consider actions to promote progress through
national forest and land-use plans and programmes in implementing the
Non-legally Binding Authoritative Statement of Principles for a Global
Consensus on the Management, Conservation and Sustainable Development of All
Types of Forests (Forest Principles),1 as well as chapter 11 and other
chapters related to forests in Agenda 21,2 through an open, transparent and
participatory process involving Governments and all interested parties,
including major groups, particularly indigenous people and local communities.3
Draft conclusions and proposals for action
1. General conclusions
2. [The Panel recognized the significance of national forest programmes
(NFPs) in promoting sustainable forest development, with particular regard to
the conservation of biological diversity as well as the promotion of soil,
water and fragile ecosystems. However, it noted that NFPs should be
implemented in the context of [diverse] [each country's] socio-economic,
cultural, political and environmental situation [in various parts of the
world]. The Panel also noted that NFPs should be integrated into land-use
plans, and be related to wider programmes for integrated land-use management,
in accordance with chapters 10 to 15 of Agenda 21.]
OR
2. [The Panel recognized the significance of national forest programmes
(NFPs) in promoting sustainable forest [development.] [management (SFM) in
many countries but also recognized that other policy frameworks are relevant
in other countries.] [However,] it noted that [NFPs should] [SFM will] be
implemented in the context of diverse socio-economic, political and
environmental situations in various parts of the world. The Panel noted [that
NFPs should be related] [the relationship of NFPs] to wider programmes for
integrated land-use management, in [accordance with] chapter 10 of Agenda 21.]
3. The Panel noted that NFPs can provide an effective link between
strategic and operational planning only when forest activities and services
generate economic values and ensure benefit-sharing. It also noted that NFPs
should be specifically designed to increase effectiveness and efficiency in
the management, conservation and sustainable development of all types of
forests [sustainable forest management [and development] at the country level,
with a view to attracting increased [commitments of both] domestic and
external resources].
4. [The Panel emphasized a number of specific elements needing
consideration when developing and implementing NFPs, notably the need for
appropriate participatory mechanisms to involve all interested parties, in
particular local communities and indigenous people; [decentralization and]
empowerment of regional and local government structures and decentralization
where applicable; recognition of [the rights of] [and respect for] special
groups such as indigenous peoples, local communities and other forest
dwellers, forest owners [and forest workers]; and establishment of effective
coordination mechanisms and conflict-resolution schemes.]
OR
4. [The Panel emphasized a number of specific elements [needing
consideration when] [that are relevant to] developing and implementing NFPs or
other policy frameworks, notably the need for appropriate participatory
mechanisms to involve all interested parties, [in particular local communities
and indigenous people; decentralization and empowerment of regional and local
government structures; recognition of the rights of special groups such as
forest dwellers and forest workers;] [secure land tenure arrangements;
recognition of customary and traditional rights of indigenous people]; and
establishment of effective coordination mechanisms and conflict-resolution
schemes.]
2. Specific conclusions and proposals for action
[The NFP concept and its basic principles]
5. [The Panel commended the concept of national forest programmes as a
generic expression for a wide range of approaches to the process of planning,
programming and implementing the management, conservation and sustainable
development of all types of forests [the sustainable development of forests]
in a given country. NFPs comprise within a broad intersectoral approach, the
planning of forest-related activities, taking into account the activities of
other sectors, such as agriculture, energy and industrial development. NFPs
[including] [include] the formulation of policies, strategies and plans of
action as well as their implementation, including monitoring and evaluation.]
OR
5. [The Panel commended the concept of national forest programmes as [a
generic expression for a wide range of approaches] [an important approach] to
the process of planning, programming and implementing the sustainable
[development] [management] of forests in countries. NFPs comprise the
planning of forest activities, including the formulation of policies,
strategies and plans of action, as well as their implementation, including
monitoring and evaluation.]
6. [The Panel emphasized the need [to adopt] [for having] a flexible
approach to NFPs and indicative land-use plans recognizing that some countries
prefer to pursue their forest policy goals by means other than [formal]
[formally binding] plans and programmes. Specific decisions in this regard
were considered a prerogative of national Governments. This flexible approach
recognizes country differences in systems of government, constitutional and
legal frameworks, subnational authorities and jurisdiction, land and resource
ownership patterns, and mechanisms for public participation. In this respect,
the Panel acknowledged the usefulness of testing and demonstrating the concept
of NFPs on an operational scale.]
OR
6. [The Panel emphasized the need [to adopt a flexible approach to NFPs]
[for flexible approaches to SFM], recognizing that some countries pursue their
forest policy goals by means other than formal plans and programmes. Specific
decisions in this regard were considered the prerogative of [national
Governments] [individual countries] based on differences in systems of
government, constitutional and legal frameworks, subnational authorities and
jurisdiction, land and resource ownership patterns and mechanisms for public
participation.]
6 bis. The Panel recognized the need for NFPs to be based on a sound economic
valuation of forest resources, including environmental services and non-timber
products, and to take into account the impact of international trade and
market forces in the implementation of NFPs.
7. Regardless of the approach adopted by individual countries, NFPs or
other relevant policy frameworks, as long-term iterative processes, should be
based on [guiding principles recognizing] the following key elements:
national sovereignty and country leadership; consistency with national
policies and international commitments; integration with the country's
sustainable development strategies; partnership and participation; [and]
holistic and intersectoral approaches that recognize forests as diverse
ecosystems; and secure land and property rights.
7 bis. The Panel also recognized the need for an external economic and
commercial environment that is supportive of NFPs and, in particular, the need
for these programmes to be supported by a market context that enhances the
economic value of forest resources and ensures adequate and remunerative
prices with respect to the sustainable use of those resources.
Proposals for action
8. The Panel:
(a) [Urged Governments to develop, implement and monitor NFPs, which
should be developed within an intersectoral approach in accordance with their
guiding principles, as an effective means to [address] [implement] sustainable
forest management in all types of forests, thus increasing their capacity to
meet the increasingly high and conflicting demands for forest goods and
services.] [Urged countries to develop and implement NFPs or other relevant
policy frameworks;]
(a) bis. Urged Governments and relevant organizations to develop an
international consensus on the principles and content of NFPs, building on the
work done by FAO in this area, and taking full account of the important work
done by UNDP on forest partnership agreements;
(b) [Urged national authorities to integrate criteria and indicators for
sustainable forest management [fully] [as appropriate] into the overall
process of the formulation [and], implementation and monitoring of NFPs, which
should also fully integrate environmental and conservation issues into wider
economic and land-use plans;]
OR
(b) [Urged [national authorities] [countries] to integrate national
level criteria and indicators for sustainable forest management fully into the
overall process of the formulation and implementation of NFPs or other
relevant policy frameworks;]
(b) bis. Urged countries and local actors to adopt the concept of
land-use plans as an appropriate means to promote SFM and land-use husbandry
at the national and local levels in both developing and developed countries;
(b) ter. Called for the formulation of an internationally acceptable and
agreed set of definitions and terms used in the management, conservation and
sustainable development of all types of forests;
(b) quater. Urged countries to adequately reflect their national
priorities on forest-related issues in their negotiations and agreements on
international cooperation and to increase the emphasis on national capacity-
building within NFPs;
(b) quinquiens. Urged bilateral and multilateral organizations to use
NFPs as a framework for the support and coordination of forest-related
activities;
(b) sexiens. Urged countries to ensure broad representation of forest-
dependent groups and indigenous communities in forest planning. Planning
systems need to facilitate a process that identifies and involves community
forest-user groups in meaningful decision-making regarding protection and
management goals and operations affecting state forest lands in their
proximity.
[Financing NFPs]
9. [The Panel stressed that [dependable] funding, particularly the
provision of external resources, including private foreign investment and
official development assistance (ODA), whenever possible, depending on the
socio-political conditions of the country concerned, is greatly facilitated by
clear recipient government commitment to the implementation of national
policies and programmes in developing countries in the forest and forest-
related sectors that promote SFM.] [The Panel stressed the need for
international cooperation in the provision of new and additional financial
resources for the effective implementation of national policies and programmes
in the forest and forest-related sectors.]
10. The Panel [recognized the importance of new and innovative sources of
funding for SFM, including developing and implementing NFPs, but] stressed
that public funds in [most] [many/some] countries, particularly in developing
countries with low forest cover, will continue to be the most important source
of finance.
Proposals for action
11. The Panel:
(a) [Urged Governments to give priority to actions conducive to the
sustainable management [and development] of forests, in order to ensure that
adequate funding from [both] national [and international] sources is directed
to the formulation and implementation of NFPs;]
OR
(a) [Urged [Governments] [countries with NFPs] to give priority in
national programmes to actions conducive to the sustainable management [and
development] of their forests, in order to better attract [ensure that
adequate] funding from both national and where appropriate international
sources [is directed to the formulation and implementation of NFPs]];
(a) bis. Urged donor countries to provide new and additional resources,
including ODA, for the formulation and implementation of NFPs;
(b) Called for more efficient investment policies for the successful
implementation of NFPs.
(b) bis. Community forest management systems should be an integral part
of national forest plans. International agreements and donor programmes
supporting this sector should reflect the importance of integrating
communities into the planning process.
[Capacity-building]
12. [The Panel recognized the importance of assessing and, where necessary,
enhancing national [and international] capabilities at all levels to develop,
implement, monitor and evaluate the [conservation, management and sustainable
development of forests] [management, conservation and sustainable development
of all types of forests]. It also emphasized the need for [technology
transfer and additional resources in many] [developed countries to transfer
environmentally sound technologies and provide new and additional financial
resources to developing] countries.]
OR
12. [The Panel recognized the importance of assessing and, where necessary,
enhancing national capabilities at all levels to develop, implement, monitor
and evaluate the [conservation, management and sustainable development of
forests] [management, conservation and sustainable development of all types of
forests.] It also emphasized the need for technology transfer and additional
resources [in many] [especially in developing] countries and countries with
economies in transition.]
OR
12. [The Panel recognized the importance of assessing and, where necessary,
enhancing national and international capabilities at all levels to develop,
implement, monitor and evaluate the [conservation, management and] sustainable
[development] [management] of forests. It also emphasized the need for
[technology transfer and] additional [resources] [capacity] in many
countries.]
13. The Panel, recognizing the intersectoral nature of NFPs, advised
national authorities to look into the institutional capacity of forest-related
sectors [particularly those whose actions can hinder] [to ensure] the
successful implementation of NFPs.
Proposals for action
14. The Panel:
(a) Urged Governments, particularly of developing countries and
countries with economies in transition, to include capacity-building as an
objective of NFPs, paying particular attention to training, extension services
and technology transfer and taking into account local, traditional forest-
related knowledge;
(b) Encouraged national authorities to consider the need to enhance
capacities in all relevant sectors, including [public, private] [the public
and private sectors, indigenous peoples, local communities] and
non-governmental sectors, [effectively and in a coordinated manner,] taking
into account the role played by each of the interested parties in the
[sustainable development] [management, conservation and sustainable
development of all types] of forests, in order to achieve country-led design
and implementation of NFPs.
[Coordination]
15. The Panel acknowledged that coordination [between] [among] all
interested parties at the national and international levels is crucial for the
[conservation], management [and sustainable development] of all types of
forests. The Panel noted the input received from the Conference of the
Parties to the Convention on Biological Diversity with respect to biological
diversity and forests.
Proposals for action
16. The Panel:
(a) [Urged] [Encouraged] [Governments] [countries as needed] to
establish sound national coordination mechanisms amongst all interested
parties, based on consensus-building principles, to promote SFM, including
where appropriate to oversee the smooth implementation of NFPs;
(b) [Encouraged [Governments to [support the further development and
testing of] [draw from] the concept of a forest partnership agreement, within
countries with different interest groups, as a potential instrument for]
countries to further explore the feasibility of voluntary partnerships as a
way to improve coordination and communication [and a vehicle for long-term
commitments between all national and international partners in cooperative
programmes according to mutually agreed terms] [between countries in support
of SFM];]
(b) bis. Welcomed further input from the Conference of the Parties to
the Convention on Biological Diversity, in particular with respect to
providing technical advice related to the integration of conservation measures
and sustainable use of biological diversity within national forest and
land-use plans.
[International cooperation]
17. The Panel noted the importance of improved regional and international
[cooperation] [networks] for the exchange of information [and] [,] technology
[through the establishment of appropriate networks,] [and know-how] in support
of national [forest] programmes for SFM.
Proposals for action
18. The Panel:
(a) Called for [the establishment of] improved [cooperation schemes]
[coordination] in support of sustainable forest [development] around the world
and [urged all countries to use NFPs as the basis for international
cooperation in the forestry sector] [recognized the utility of NFPs in this
regard];
(a) bis. Called for the further development of the concept of a forest
partnership agreement as a potential instrument for improved coordination and
cooperation between all national and international partners;
(b) [Called upon Governments to support the [need for the] creation of
[a consultative body as] a continuing forum for international consultations on
national forest development. */ (*/ To be reconsidered after discussions on
programme element V.1.) [Considered that ways and means to improve
international coordination in support of national priorities for SFM should be
further explored.]
B. Programme element I.2: Underlying causes of deforestation
and forest degradation
Mandate
19. As defined by the Commission on Sustainable Development, the aim of
programme element I.2 is the need to "identify and consider ways to address
the underlying causes of deforestation, forest degradation and the
difficulties in implementing sustainable forest management, with particular
attention to cross-sectoral factors, including the impact on and from forests,
at the national and international levels, such as consumption and production
patterns, poverty, population growth, pollution, terms of trade,
discriminatory trade practices and unsustainable policies related to sectors
such as agriculture, energy and trade".4
Draft conclusions and proposals for action
1. General conclusions
20. The Panel noted the critical need to understand the underlying causes of
deforestation and forest degradation. Deforestation and forest degradation
pose a serious problem in many countries and the adoption of a more focused
approach that concentrates on reversing the most damaging processes and
promoting the most effective and beneficial measures is needed. [The causes
of deforestation and forest degradation are often country-specific, and
simplistic conclusions, overgeneralized solutions or prescriptions for policy
should be avoided.]
21. The Panel recognized the key role of economic development in reducing
pressure on forests, thereby allowing sustainable approaches to replace those
leading to deforestation and forest degradation. Each country, whether
developing or developed, will have a particular set of circumstances, in terms
of both the direct and underlying causes as well as of the scope for action in
addressing those causes. In this context, it is important to consider
historical dimensions and to learn from the experience of developed as well as
developing countries. Many of the factors causing deforestation or forest
degradation interact and some are synergistic. Although some, such as
unsustainable timber extraction, are linked to the forest sector itself,
others lie outside it. Most causes are social and economic. Inappropriate
policy choices and approaches in other sectors can influence deforestation and
forest degradation. [Poverty] [Production] and consumption patterns as well
as land speculation and land markets have a major influence on deforestation.
22. The Panel noted that land tenure issues have an important effect on
access to, and use of, trees, soil, water, and forest [products and forest]
[goods and] services. It is important to recognize the local initiatives that
counter the current trends of deforestation and forest degradation, especially
among indigenous and local communities. Illegal logging and land occupation,
illegal crops, grazing pressure, unsustainable agriculture, the demand for
fuelwood and charcoal to meet basic energy needs, refugee-related problems and
natural events [such as volcanic eruptions, weather phenomena and forest fires
are important factors, among others, in many regions.] [Many functions, for
example unsustainable agriculture, illegal logging and land occupation,
illegal crops, grazing pressure, the demand for fuelwood and charcoal to meet
basic energy needs, and natural events are important factors in many regions.]
23. [[Different countries have different requirements and these requirements
change over time and affect both the area and the nature of their forests.
[The benefits and disbenefits of different types of forest,] [The advantages
and disadvantages of different types of forest management,] [The benefits and
costs of different types of forest,] including forest plantations, need to be
appraised under different social, cultural, economic and ecological
conditions.] The Panel emphasized that there are rational justifications for
many changes in forest structure and cover including conversion of plantation
forests and that [deforestation] [such changes] need not necessarily be
[harmful] [considered undesirable] if planned within national policy
frameworks for sustainable land use. [The Panel recognized that both
sustainably managed natural forests and forest plantations have a valuable
role in meeting the need for forest [products] [goods] and services as well as
helping to conserve biological diversity] [It was recognized that sustainable
management and use of both natural forests and forest plantations, as part of
an integrated land-use plan taking into account relevant environmental and
socio-economic concerns, fulfilled a valuable role in helping to meet the need
for forest products and services as well as to conserve biological diversity
and to increase carbon storage.]
23 bis. The importance of convening an international meeting for further
analysis and discussion of the international underlying causes of
deforestation and forest degradation was noted.
2. Specific conclusions and proposals for action
Consumption and production patterns
24. [The Panel recognized the importance of long-term changes in consumption
and production patterns in different parts of the world and their positive and
negative effects on the sustainable management [and use] of forests. Their
implications should be reviewed in the context of the work being done by the
Commission on Sustainable Development and other relevant initiatives concerned
with the long-term supply of and demand for forest [products.] [goods and
services].]
OR
24. [The long-term outlook is for a steadily rising demand for wood and for
forest services, and a declining area of forest for their production.
Increasing pressure on wood supply from demand for non-wood goods and
services, and increasing pressure on forests from demand for land for other
uses suggest that a priority is the need to strengthen intersectoral decision-
making affecting land use. Increasingly, effective institutions for resource
management, land use, research, education and extension will be an important
part of sustainable forest management.]
25. The Panel considered that among the various international underlying
causes of deforestation and forest degradation, [transboundary economic
forces] [international trade and investment] and [transboundary] [long-range]
pollution] are [particularly] important. Factors such as discriminatory
international trade practices, structural adjustment programmes and external
debt could indirectly influence deforestation. Market forces and relative
prices, including those of agriculture commodities, as well as
[under-]valuation of wood and non-wood forest products have a direct bearing
on [the sustainable management of all types of forests.] [the management,
conservation and sustainable development of all types of forests]. Dealing
with deforestation and forest degradation, therefore, often requires changes
to polices and plans in other sectors at both the national and international
levels.
Proposals for action
26. The Panel:
(a) [Urged Governments, where relevant, with the support of
international organizations, to prepare in-depth [strategic] studies of the
implications of [present] [current] consumption and production patterns for
forest goods and services, with both market and non-market values, in
developing and developed countries, with special emphasis on their positive
and negative effects on the sustainable management and use of forests [and
paying particular attention to terms of trade, discriminatory trade practices
and unsustainable policies related to such sectors as agriculture and energy].
These studies should also analyse comprehensively the historical perspective
of the causes of deforestation and forest degradation in the world and other
international underlying causes of deforestation and forest degradation,
including transboundary economic forces [as well as provide new factual
information on the significance of transboundary pollution];]
OR
(a) [Urged further study of the international underlying causes of
deforestation and forest degradation with a view to providing factual
information on the effects and the significance of transboundary pollution;]
OR
(a) [Urged countries to consider actions to ensure that wood supply and
demand expands in the context of sustainability, with special emphasis on
investments in sustainable forest management and strengthening institutions
for resource management;]
(a) bis. Urged that the role of plantation forests as an important
element of sustainable forest management, particularly in taking pressure off
natural forests, be recognized, enhanced and promoted;
(a) ter. Urged countries to convene and finance as soon as possible a
global workshop on international underlying causes of deforestation and forest
degradation.
National policy framework
27. It [is only possible] [may be helpful] to decide whether changes in
forest cover are [or are not harmful against] [beneficial or not by
considering] a background represented by a national policy framework for
[sustainable forest management] [the management, conservation and sustainable
development of all types of forests] that encompasses and harmonizes elements
pertaining to social and economic development programmes, environment plans,
land-use plans, and national biodiversity strategies and action plans. All
these national instruments, jointly and consistently, should enable countries
to [assess] [secure] the quantity and quality of forest required to provide
the full range of benefits, goods and services needed by society now and in
the future.
Proposals for action
28. The Panel:
(a) [Urged [donor] [all] countries [and international organizations,
including regional development banks, to assist and finance] [to undertake]
research, technology transfer, case studies and capacity-building activities
in [developing countries] to allow an integrated approach towards:]
(i) [[The formulation and [application] [implementation] of [Urged
countries to formulate and [apply] [implement]] national strategies,
through an open and [inclusive] [participatory] process, for
addressing the underlying causes of deforestation and defining
policy options for desirable forest cover, as inputs to the
implementation of the national forest programmes or other relevant
policy frameworks recommended in programme element I.1];
OR
(i) [The promotion of open and participatory processes for the
formulation and implementation of national forest programmes, taking
into account the underlying causes of deforestation and the need to
define policy options for desirable forest cover;]
(ii) [[The development of] [To develop] mechanisms, including
environmental impact assessment (EIA), through an open and
[inclusive] [participatory] process, to improve policy formulation
and coordination, as well as planning, management and implementation
of relevant national programmes for achieving [sustainable forest
management;] [the management, conservation, and sustainable
development of all types of forests;]]
OR
(ii) [The formulation of mechanisms aimed at the equitable sharing of the
benefits of the forests;]
(ii) bis. The formulation of a policy of securing land tenure for local
communities and indigenous peoples;
(ii) ter. [Conducting] [The conduct] of strategic analysis of policies
that have contributed to forest degradation and deforestation
as well as those that have had a positive effect;
(b) [Requested donor countries and international organizations to assist
developing countries in financing research, technology transfer, case-studies
and capacity-building activities to allow an integrated approach towards the
formulation and application of a national policy framework and in conducting a
strategic analysis of relevant political, legal and institutional frameworks
that have policies that have contributed to forest degradation and
deforestation as well as of those that have had a positive effect;]
(b) bis. Recommended that the provision of timely, reliable and accurate
information on the underlying causes of deforestation and forest degradation,
as well as on the multiple roles of forests, which is essential for public
understanding and informed decision-making, should be assured;
(b) ter. Urged donor countries, multilateral and international
organizations, including regional development banks, to assist and finance all
the above activities in developing countries and countries with economies in
transition.
Application of the diagnostic framework
29. In many countries there is a need for further analysis of the sequence
of causes contributing to changes in the quantity and quality of forests,
focusing attention on the action that might be most effective in halting
damage and promoting beneficial change. This analysis would be facilitated by
the use of a comprehensive diagnostic framework, elements of which have been
elaborated in reports of the Secretary-General submitted to the Panel.
30. This diagnostic framework not only would serve as a useful tool in both
developing and developed countries for analysing deforestation and forest
degradation but also, in adapted forms, could be invaluable in setting the
objectives of national forest policies; introducing a historical perspective
into the analysis of causes; identifying causes originating from national and
international consumption and production patterns affecting deforestation in a
particular country; exploring the effects of policies in other sectors on
deforestation and forest degradation and the ways in which modification of
such policies might promote [sustainable forest management] [the management,
conservation and sustainable development of all types of forest]; using and
refining criteria and indicators and methods of valuation; locating
deficiencies in capacity (for example, in management and supervision,
information, research or education); relating to national action plans for
other international agreements and conventions; and generally, as a powerful
management tool, in furthering the implementation of [sustainable forest
management] [the management, conservation and sustainable development of all
types of forests].
31. The main function of the diagnostic framework should be constructive,
corrective and forward-looking. It would complement and strengthen other
existing planning exercises and should also be used, together with criteria
and indicators (programme element III.2), as a tool for the periodic
assessment of progress (programme element III.1 (a)). As a management tool,
it should be developed voluntarily [and not used as a basis for conditionality
in ODA.] [The need for] [A comprehensive diagnostic framework [must not delay
action] [is not needed] in countries where major direct or indirect causes
have been identified, well understood and documented or where deforestation is
not viewed as a problem at the national level.
Proposals for action
32. The Panel:
(a) Encouraged [developed countries] [the international community] [all
countries] to assist developing countries [in undertaking] [to undertake] case
studies using the diagnostic framework [described in the report of the
Secretary-General (E/CN.17/IPF/1996/15)] in order to develop and test its
usefulness as a positive management tool to identify the underlying causes of
[forest destruction and degradation] [deforestation and forest degradation],
[prepare] [consider] corrective action and plan for the future;
(b) Urged that the results of such case studies and proposals for
refinement of the diagnostic framework be communicated widely;
(b) bis. Urged Governments to continue to take prompt action when direct
or indirect causes have already been identified and to use the diagnostic
framework as an analytical tool in assessing options for utilization of
forests and forest lands;
(b) ter. Urged developed countries and multilateral and international
organizations, including regional development banks, to assist developing
countries and countries with economies in transition in the application of the
diagnostic framework.
C. Programme element I.3: Traditional forest-related knowledge
Mandate
33. As defined by the Commission on Sustainable Development, the aim of
programme element I.3 is to encourage countries, consistent with the terms of
the Convention on Biological Diversity, to consider ways and means for the
effective protection and use of traditional forest-related knowledge,
innovations and practices of forest dwellers, indigenous people and other
local communities, as well as fair and equitable sharing of benefits arising
from such knowledge, innovations and practices.5
Draft conclusions and proposals for action
1. General conclusions
34. The Panel noted the statement of the Conference of the Parties to the
Convention on Biological Diversity6 and its relevance for work under the
different elements of the Panel's programme of work. [The Panel recognized
that those aspects [related] [relevant] to the conservation and sustainable
use of biodiversity and the fair and equitable sharing of benefits from the
[commercial use] [utilization] of biological resources [identified by means of
traditional forest-related knowledge (TFRK)] fall, inter alia, within the
purview of the Convention on Biological Diversity, [since TFRK is a subset of
the "knowledge, innovations and practices" referred to in article 8 (j) of the
Convention and the genetic resources of forest ecosystems are a subset of the
genetic resources referred to in article 15.]] [The Panel recognized that the
Convention on Biological Diversity contains several provisions, including
articles 8 (j) and 10 (c), relevant to TFRK of the conservation and
sustainable use of biodiversity. The Convention does not address all TFRK; it
addresses only TFRK that relates to the conservation and sustainable use of
biodiversity. Therefore, the work carried out under the Convention should
complement rather than determine the work of the Panel, which focuses on
issues of sustainable forest management.] The Panel also noted that, at its
fourth session, it would need to take into account, as appropriate, the
outcome of the third meeting of the Conference of the Parties to the
Convention on Biological Diversity (Buenos Aires, 4-15 November 1996) in
relation to indigenous knowledge.
34 bis. The Panel noted the importance of TFRK for the development of
national policies and strategies on sustainable forest management. It
stressed the need to reflect the issue of TFRK and its relevant potential for
action in national forest programmes.
35. [The Panel [was concerned] [seeks] to avoid duplication or overlap with]
[The Panel noted the interlinkages with a number of] other relevant
intergovernmental processes, in particular with those of the Convention on
Biological Diversity. It paid due attention to the terms of the United
Nations Convention to Combat Desertification in Those Countries Experiencing
Serious Drought and/or Desertification, particularly in Africa, the United
Nations Framework Convention on Climate Change and ILO Convention (No. 169)
concerning Indigenous and Tribal Peoples in Independent Countries as well as
the Agreement on Trade-related Intellectual Property Rights (TRIPS) under the
World Trade Organization. The Panel [also] noted the ongoing consideration of
relevant matters within the United Nations [system] [the Commission on Human
Rights and the United Nations convention on the rights of indigenous peoples,
as well as the negotiations taking place in the Commission on Genetic
Resources for Food and Agriculture of FAO]. The Panel noted that existing
instruments and agreements should be implemented and developed with the aim of
making them mutually supportive while, at the same time, avoiding unnecessary
duplication of work.
35 bis. The Panel also noted that an inter-sessional meeting on indigenous
people was scheduled to take place at Leticia, Colombia, from 9 to
13 December 1996. The Panel recognized the possible relevance of the outcome
of the meeting for the deliberations at its fourth session.
36. The Panel recognized that TFRK constitutes an important body of
knowledge and experience relevant to many aspects of the Panel's mandate,
especially to sustainable forest management, the use of [timber and non-timber
forest products] [forest products and services] and the establishment of
relevant values. TFRK should be [considered as an integral part of the
information base for sustainable forest management] [broadly defined to
include institutional, authority and governance structures, cultural belief
and value systems, land and resource use systems, and conflict resolution as
well as mediation processes, all of which are integral parts of sustainable
forest management] and its cross-sectoral linkages. [The Panel also
recognized the great complexity of the issues surrounding the meaning of TFRK,
which includes intellectual property rights, patents, customary law,
indigenous legal systems and traditions relating to access and utilization as
well as to knowledge of the resources themselves.] The Panel further
recognized the various roles of different partners and the great complexity of
the issues surrounding discussion of TFRK, which can include property rights,
customary law, indigenous legal systems and traditions relating to access and
utilization as well as to knowledge of the resources themselves.] [The Panel
recognized that the application of TFRK to sustainable forest management may
present complex issues.] In some countries, forest owners will also have a
role to play in the use of TFRK.
37. [As a result of inadequate measures for conservation and sustainable
use, accelerated loss of forests is undermining and destroying communities
with sustainable lifestyles and TFRK.] [The introduction of new techniques,
equipment and/or economic opportunities can accelerate forest loss and
undermine or destroy forest-dwelling communities with sustainable lifestyles
and TFRK.] [As a result of inadequate measures for conservation and
sustainable use of forests, communities with sustainable lifestyles have been
affected.] [As a result of inadequate measures for conservation and
sustainable use, as well as changing living conditions, accelerated loss of
forests is undermining and destroying communities with a sustainable lifestyle
and dependent on TFRK.] The Panel recommended that indigenous people, forest
owners, forest dwellers and local communities should be enabled to play a
[key] role in [defining] participatory [approaches to forest and land-use
management] [approaches to sustainable forest management and land-use
planning] [with the involvement of] [together with] all interested relevant
parties from both public and private sectors, and with greater focus on
resource management, land-use systems and conflict resolution.
38. At the international level there is a need to promote the [establishment
of mechanisms for the] exchange of national experiences [and for mechanisms,
including financial investment,] to stimulate programmes for sustainable
forest management [and the development of products derived from TFRK,
including the appropriate involvement of the private sector.] [On the basis
of the principle of common but differentiated responsibilities, the Panel
noted that developed countries [bear a special responsibility] [provide
effective support] in facilitating the necessary conditions for the
conservation and sustainable use of forest biological diversity. This implies
a constructive approach to the transfer of technologies and financial
resources to strengthen the capabilities of indigenous peoples, forest
dwellers and local communities for sustainable forest management.] [The
conservation and sustainable use of forest biological diversity requires
constructive approaches to the transfer and equitable sharing of technologies
and financial resources to strengthen the capabilities of indigenous peoples,
forest dwellers and local communities for sustainable forest management.]
2. Specific conclusions and proposals for action
Meaning of traditional forest-related knowledge and
property rights
39. TFRK can provide a strong basis for sustainable forest management and is
relevant to most of the other programme elements. The Panel, however,
recognized that the international and national communities are still at an
early stage of identifying ways and means for the effective protection and use
of TFRK [(and of exploring the relationships between TFRK and sustainable
forest management).] The complex nature of this cross-cutting relationship
involves natural and social sciences, culture, tradition and the environment.
[In this context the Panel agreed that TFRK is indeed useful in locating
valuable new products, and that accessing these on fair and equitable terms
can only benefit each country and its indigenous and local communities in its
efforts to achieve sustainable development.]
40. [[Governments and others who wish to use such knowledge should
acknowledge that TFRK cannot be taken from people without [observing the
principle of prior informed consent] [their consent.]] [The Panel concluded
that ways and means to ensure effective protection of indigenous rights [and
payment of royalty on intellectual property rights] should be identified in
the context of national and international legislation, customary law and
indigenous legal systems, to ensure the fair and equitable sharing of benefits
among all interested parties including indigenous populations, forests
dwellers and local communities.] [The Panel concluded that the effective
protection of indigenous rights requires the fair and equitable sharing of
benefits among all interested parties, including indigenous populations,
forest dwellers, forest owners and local communities, in accordance with
article 8 (j) of the Convention on Biological Diversity.]]
OR
40. [International cooperation on TFRK and rights related to it must be
consistent with obligations under the Convention on Biological Diversity and
other relevant instruments.]
OR
40. [Governments and others who wish to promote or engage in the wider
application of TFRK should encourage the approval and involvement of the
holders of such knowledge. The Panel concluded that ways and means to ensure
the preservation and application of TFRK to sustainable forest management
should be identified in the context of national legislation, including
relevant indigenous legal systems.]
Proposals for action
41. The Panel:
(a) [Invited Governments to explore further at the national and
international levels the policy, institutional and legal frameworks required
to support the possible applications of sui generis intellectual property
rights and protection regimes to TFRK;
(b) Encouraged Governments and TFRK-holding groups to consider entering
into [sui generis] formal agreements by which TFRK can be accessed;]
OR
(b) [Urged Governments, in implementing their forest programmes, to take
measures to protect TFRK, taking account of the outcome of the third meeting
of the Conference of the Parties to the Convention on Biological Diversity,
(Buenos Aires, 4-15 November 1996), in relation to indigenous populations.]
[Invited Governments to explore further at the national level policy,
institutional or legal frameworks for TFRK that would facilitate formal
agreements by which TFRK can be accessed;]
(b) bis. Invited the World Intellectual Property Organization together
with the United Nations Conference on Trade and Development to undertake a
study aimed at advancing international understanding on the relationship
between intellectual property and TFRK, and to propose possible ways and means
to ensure effective protection of TFRK and the equitable sharing of benefits
arising from such knowledge;
(b) ter. Requested the Secretariat to produce a compilation of
international instruments and national legislation, including draft
legislation, pertaining to the protection and use of TFRK and the equitable
sharing of benefits arising from such knowledge; and encouraged countries to
exchange information on national experiences in this field;
(b) quater. Encouraged Governments to consider, inter alia, the
possible use of partnership agreements by which TFRK can be accessed;
(b) quinquiens. Invited Governments and relevant international
organizations to explore different options for developing sui generis regimes
for the protection and equitable sharing of benefits arising from indigenous
and local knowledge, including TFRK;
(b) sexiens. Urged national Governments and relevant international
organizations to implement and further develop instruments and agreements with
relevance to TFRK with a view to making such instruments and agreements fully
mutually supportive;
(b) septiens. Invited Governments to identify knowledge, innovations
and practices that are relevant for the conservation and sustainable use of
biological diversity and to identify customary use compatible with
conservation or sustainable use requirements.
Establishing partnerships
42. [In the context of national legislation, certain conditions, [in
particular prior informed consent,] will need to be met if indigenous people,
their communities and other local communities and forest dwellers are to
participate fully in partnership agreements and to offer their TFRK for the
benefit of other interested parties. Holders of TFRK will need to be
represented by their own representatives; to feel secure in their land tenure
arrangements; to be reassured that they have been accorded status equal to
that of the other members of the partnerships; and to be convinced of a common
purpose compatible with their cultural and ecological values.]
OR
42. [In the context of national legislation, the Panel stressed the need for
prior informed consent. Holders of TFRK will need to be represented to feel
secure in their land tenure arrangements; to be reassured that they have been
accorded appropriate status, and to be convinced of a common purpose
compatible with their cultural values.]
OR
42. [Subject to national legislation, Governments should encourage the full
participation of all stakeholders, including indigenous people, their
communities and other local communities and forest dwellers, in partnership
agreements.]
Proposals for action
43. The Panel [urged Governments, with the assistance of international
organizations, to support capacity-building activities for creating
partnership agreements for sustainable forest management with indigenous
people, forest dwellers and local communities.] [Urged Governments, where
necessary with the assistance of international organizations, to seek to
promote the creation of partnership agreements among interested parties.]
Participatory approaches [and management of traditional forest-related
knowledge]
44. Indigenous people, forest dwellers and local communities [must] [should]
play a [key] role in [defining] [developing] participatory approaches to
forest and land management, which include [community forest management
systems, resource management institutions, land-use systems and conflict
resolution.] [community forest management, land-use resource management,
research, training and extension, the formulation of criteria and indicators,
and conflict resolution.] These approaches will be of paramount importance
for the successful implementation of future activities relating to most of the
programme elements.
Proposals for action
45. The Panel:
(a) Urged Governments to incorporate participatory processes in national
forest programmes in order to promote and provide the opportunities for the
full participation of indigenous people, forest dwellers, forest owners and
local communities [in forest and land management,] in public lands [in the
formulation of forest and land-use programmes at the national, regional and
local levels;] consistent with principles 2 (d) and 5 (a) of the Forest
Principles;
OR
(a) [Urged Governments to promote and provide the opportunities for the
participation of indigenous people, forest dwellers and local communities in
the development, implementation and planning of national forest policies,
consistent with principles 2 (d) and 5 (a) of the Forest Principles;]
(b) Urged Governments, with the support of international organizations
such as [ITTO, UNEP, UNDP, the World Bank and FAO, to assist national and
local governments in the preparation of technical guidelines on TFRK
application, bringing together knowledge and experience on the approaches that
work in practice;] [FAO, UNEP, UNDP, ITTO, the World Bank and others to assist
governments in the preparation of technical guidelines for participatory
approaches to TFRK applications;]
OR
(b) [Urged Governments, with the support of international organizations,
to work with all interested parties in the preparations for TFRK applications,
bringing together knowledge and experience on the approaches that work in
practice;]
(c) [Encouraged Governments in the context of their national laws and
legislation to support local efforts that can play a facilitator role to
build-up the [negotiation] capacity of indigenous people, forest owners,
forest dwellers and local communities to participate as full partners,
[rightholders and stakeholders in sustainable forest management schemes;] [in
their management, protection and use of TFRK;]
(d) Invited Governments to organize a series of national, regional and
international consultations for promoting the establishment of TFRK
partnerships and the application of participatory planning methodologies;]
OR
(d) [Encouraged Governments to organize national, regional and
international consultations to support efforts, including legal efforts, that
can play a facilitator role to increase the capacity of indigenous people,
forest dwellers and local communities to participate as partners, rightholders
or stakeholders in participatory planning methodologies and in sustainable
forest management schemes on public lands;]
(d) bis. Encouraged Governments to recognize and support traditional
resources use systems incorporating TFRK through the development of new
instruments and mechanisms that enhance the security of forest-dependent
groups;
(d) ter. Urged Governments to work with communities and build on their
knowledge to establish stronger linkages between traditional and emerging
national forest management systems.
[Management] [Protection] of traditional forest-related knowledge
46. There are difficulties surrounding the acquisition, storage, retrieval
and dissemination of TFRK outside its place of origin. These difficulties
arise in the absence of [sui generis] effective [management] [protection] of
TFRK and the nature of TFRK, which is often [overwhelmingly] site- and
culture-specific [, and because to a great extent TFRK is often not amenable
to being digitized, stored in databases or accessed through clearing-house
mechanisms]. The Panel recommended further exploration of the feasibility and
modalities of exchanges in this area.
Proposals for action
47. The Panel:
(a) [Encouraged countries to identify ways to inventory, store, catalog
and retrieve TFRK and to promote its effective preservation and application,
including developing forest-dweller capacity, and to examine opportunities to
apply more widely TFRK about the management of particular types of forests to
other forests with similar ecosystems by:]
(i) [Urging Governments and international organizations to support
regional and national institutions to undertake research on TFRK
with the full involvement of the holders of that knowledge;]
OR
(a) bis. [Urged] [(ii) Urging] Governments, national institutions and
academic centres to incorporate TFRK in [standard] forest management training
as a way to sensitize forest managers to the importance of respect for and
protection of TFRK when accessing it; to the need to observe the principle of
fair and equitable sharing of benefits; and to the advantages of using it and
the disadvantages of ignoring it. They should also emphasize the importance
of recognizing TFRK in developing [national criteria and indicators within the
context of national forest programmes (programme elements III.2 and I.1) for
sustainable forest management] [and in defining certification schemes for]
sustainable forest management (programme element IV);] [criteria and
indicators (programme element III.2) within the context of national forest
programmes (programme element I.1) and in defining certification schemes for
sustainable forest management (programme element IV);]
(b) [Encouraged] [(iii) Encouraging] Governments with the support of
donors and international organizations to assist [financially and otherwise]
existing networks promoting the sharing of TFRK [as well as on mutually agreed
terms of technology and profits from biotechnology products derived from these
resources] among concerned groups and institutions in collaboration with
involved forest dwellers, indigenous people and local communities;
(c) [Urged] [(iv) Urging] Governments to promote digital mapping (using
geographical information systems (GIS) and global positioning systems (GPS)
combined with social mapping for establishing forest holdings and values;
assisting planning and management partnerships; and assisting in the [location
of cultural and] [storage of] geographical information required to support
[sustainable forest management schemes;] [the management, protection and use
of TFRK];
(d) Encouraged Governments to identify ways to inventory, store,
catalog, protect and retrieve TFRK, [guaranteeing its effective protection,
and] including developing local and indigenous capacity, and to examine
opportunities to apply traditional knowledge about the management of
particular types of forest ecosystems to other similar forest ecosystems;
(d) bis. Urged international organizations and Governments to ensure the
protection of TFRK, by providing all the support necessary to keep this
knowledge alive;
(e) Urged [donors and international organizations] [Governments and
multilateral and international organizations] to support [the establishment]
[capacity-building] of regional and national institutions dedicated to
undertaking research on TFRK with the full involvement of the holders of that
knowledge and to promote its wide understanding and use.
D. Programme element I.4: Fragile ecosystems affected by
desertification and the impact of airborne pollution
on forests
Mandate
48. As defined by Commission on Sustainable Development, the aim of
programme element I.4 is to monitor actions to support afforestation,
reforestation and the restoration of forest systems, where appropriate,
particularly in countries with fragile ecosystems and affected by
desertification and/or drought, particularly in Africa and, in this context,
to consider specific actions in countries whose forests are affected by
pollution, particularly those with economies in transition in Central and
Eastern Europe.7
Draft conclusions and proposals for action
1. General conclusions
Fragile ecosystems affected by desertification and/or drought
49. The Panel emphasized that desertification and the effects of drought are
widespread phenomena affecting forests and other wooded land in arid,
semi-arid and dry sub-humid regions. These problems are of global dimensions
in that they affect [all] [many] regions of the world and require collective
action of the international community to combat desertification and to
mitigate the effects of drought.
50. The Panel felt that this programme element should be carried forward in
close relationship with existing international conventions such as the
Convention on Biological Diversity, the United Nations Framework Convention on
Climate Change and, in particular, the United Nations Convention to Combat
Desertification in Those Countries Experiencing Serious Drought and/or
Desertification, particularly in Africa. [The work carried out under those
conventions [should not determine the] [and the] work of the panel [but should
complement and enhance it in the context of sustainable forest development]
[should be complementary to each other].] [The panel should not duplicate the
work carried out under these conventions but seek ways to complement the work
of these conventions in the specific context of sustainable forest
management.]
51. Forest-related action aimed at combating desertification and mitigating
the effects of drought [should address the underlying causes of these
phenomena in an integrated manner, [and should consider the role of poverty,]
[in which the role of poverty should be considered,] along with migration,
refugees, land-use planning and policies, food security, and provision of
fodder and fuelwood, among many other economic, social and cultural causes,
including the effects of non-sustainable production and consumption patterns
as well as of trade and balanced trade relations, should be considered in a
manner consistent with the Convention to Combat Desertification] [should be
determined in the context of national forest programmes, taking into account
the underlying causes of these phenomena and the relevant conceptual
considerations outlined under programme elements I.1 and I.2, in accordance
with the Convention to Combat Desertification].
52. The Panel emphasized the need for cross-sectoral action at the political
and policy-making levels to improve legislation and to accelerate
implementation within the context of national forest programmes and national
action [plans to combat desertification] [programmes, consistent with article
10 of the Convention to Combat Desertification]. Closer collaboration was
needed between forest and agriculture institutions, including support for
farmers and herders.
53. While recognizing that forest land rehabilitation would be required in
many areas and that this would need external [inputs] [financial resources,
technology transfer] and international assistance to support local and
national efforts, the Panel emphasized the need for prevention rather than
mitigation and restoration, with emphasis on improved and sustainable
management of the already existing natural forest and other vegetation. The
restoration of arid, semi-arid and dry sub-humid zones should not, however,
focus narrowly on afforestation, but also deal with the broader issue of
forest ecosystem management, including social and economic aspects. The Panel
identified the need to strengthen research, including support for regional
research networks, related to the identification of appropriate species for
arid, semi-arid and dry sub-humid land restoration, the rehabilitation of
existing vegetation types and the potential of non-timber forest products.
[This could be considered by the Committee on Science and Technology of the
Conference of the Parties to the Convention to Combat Desertification.]
54. The Panel, while considering the merits of the application of bottom-up
approaches along with top-down approaches, involving all major groups
concerned with the issues, emphasized the need for national action programmes
to draw more extensively on local and traditional knowledge and
agro-sylvopastoral systems, in accordance with guiding principles as outlined
in programme element I.3. These approaches should be supported by an enabling
legislative and institutional framework that includes secure rights and access
to land. Sustainable development strategies and national forest and land-use
programmes should be encouraged and coordinated, as appropriate. Countries in
regions affected or threatened by desertification and the effects of drought
should [propose initiatives and establish priorities for action] [be
encouraged to undertake the obligations contained in article 5 of the
Convention to Combat Desertification].
55. The Panel emphasized the need for donors, international organizations
and recipient countries [to engage in [adequate] consultations in order] to
develop efficient and coordinated programmes of international cooperation on
forests [that are consistent with] [in the context of] the Convention to
Combat Desertification, the Convention on Biological Diversity [and in
accordance with the Panel's mandate, the Forest Principles and Agenda 21].
56. The Panel noted that forest fires have continuing devastating effects on
some forest ecosystems [, in particular in countries south of the Sahara, and
those countries with dry forests in the Mediterranean zones,] although in
[other] [specific] areas they may have positive effects on the vitality and
renewal of forest ecosystems.
57. The Panel noted that the trend of expanding forest cover in some
countries had been or was being achieved as a result of popular movements in
conjunction with political and Government support. In many cases, plantations
of fast-growing trees have had good and cost-effective results in terms of
soil protection.
57 bis. Education, training and extension systems addressed to specific
groups can also play an important role in preventing deforestation and/or
desertification.
Impact of airborne pollution on forests
58. The Panel noted that the impact of air pollution on forest health is a
problem affecting not only parts of Europe, but also many other parts of the
world. The need for a preventive approach to combating, rather than
accommodating air pollution, including considerations of production and
consumption patterns, was stressed. The Panel also stressed the importance of
the Convention on Long-range Transboundary Air Pollution and welcomed the
widespread and general application of the critical loads approach adopted in
the context of that Convention.
59. The Panel emphasized the need to continue monitoring the impact of air
pollution on forest health, but also stressed the need for continuing action
to reduce air pollution, including action to transfer and supply the best
available, as well as future, technologies. The solution to the problem had
to be based on action outside the forest. [A synthesis of the impact of
airborne pollutants on forests, particularly in Central and Eastern Europe,
and an assessment of ongoing remedial activities and proposals for possible
future actions should be prepared and evaluated.]
2. [Specific conclusions]
[Fragile ecosystems affected by desertification and/or drought]
60. [An integrated approach should be adopted to the management of existing
vegetation, reforestation, afforestation and the restoration of fragile forest
ecosystems affected or threatened by desertification and/or drought within the
overall social and economic development of those areas.]
61. [A closer relationship should be established between reforestation and
the management of existing forest ecosystems, including an in-depth analysis
of traditional agro-sylvopastoral systems, [for the purpose of benefiting
from] [drawing on] existing knowledge, and devoting greater attention to the
potential of non-timber forest products. International cooperation is
essential in this respect.]
61 bis. Where appropriate, and as soon as possible, protected areas must be
supported for those fragile and endangered ecosystems affected by drought and
desertification, as part of conservation in situ strategies.
Impact of airborne pollution on forests
62. Further monitoring and evaluation should be [carried out] [continued] of
the experience of pollution-related forest decline worldwide, [of pollutant-
related declines] where they have occurred and of how the respective countries
addressed such decline.
63. The critical loads approach may be considered by those countries where
forests are, or may be, affected by air pollution.
64. The potential impact on forest health of inputs of nutrients and
airborne pollutants, acting in combination with other processes such as
natural weathering and leaching, should be recognized in forest planning and
management.
Proposals for action
Fragile ecosystems affected by desertification and/or drought
65. [While] emphasizing the need [for consistency] [to be consistent with
and avoiding duplication] with actions and developments under the Convention
to Combat Desertification, the Panel:
(a) Encouraged [Governments] [countries] to continue forest-related
analysis and [monitoring of past, present and future experiences] [evaluation
of past and present experiences and monitoring of future developments],
including biophysical, economic, social and ecological aspects and
institutional and land tenure reform, which are important for sustainable
forest management. Developing countries should be assisted so as to increase
their capacity for these activities;
(b) [Urged [Governments] [countries], with the support of donors and
international organizations, to strengthen partnerships, collaboration and
sharing of responsibilities between local communities, Governments,
non-governmental organizations and other [interested] [major] groups,
including long-term institutional and legal arrangements;]
OR
(b) [Urged Governments, donors and international organizations to
strengthen and further develop partnerships, shared responsibilities and
collective action through concerted support of national forest and land-use
programmes in accordance with the general considerations as outlined in
programme element I.1;]
(c) [Stressed the need for collective action to address the complex
issues related to dry-land forest ecosystems and [particularly urged the donor
countries to strengthen cooperation with [less developed] [developing]
countries] [invited Parties to the Convention to Combat Desertification to
give this high priority];]
(d) [Urged donors, international agencies and recipient Governments to
engage [in consultations in order to develop] [effectively in developing]
efficient and coordinated programmes of international cooperation [to combat
desertification] [on forests] [consistent with] [within the context of] the
Convention to Combat Desertification and within the broader mandate of the
panel, the Forest Principles and Agenda 21;]
OR
(d) [Urged Governments, donors and international organizations to take
the necessary steps, where relevant, to coordinate and harmonize national
forest and land-use programmes at the regional level;]
(d) bis. Encouraged Governments to express political commitment in
addressing dry-land issues, by considering them in NFPs and in other explicit
national forest policies, as well as by promoting education and training of
stakeholders in national resource management of dry lands;
(d) ter. Invited the Committee on Science and Technology of the
Conference of the Parties to the Convention to Combat Desertification to
undertake the identification of appropriate tree species for arid, semi-arid
and dry sub-humid land restoration and consider the rehabilitation of existing
vegetation and the potential for non-wood timber products;
(d) quater. Urged the promotion of protected areas where ecosystems
still exist in arid and semi-arid regions, including the preservation of their
water resources, as well as their historical and traditional uses.
Impact of airborne pollution on forests
66. The Panel:
(a) [Encouraged [Governments] [countries] to include prevention of
damaging air pollution and reduction of [transboundary] [long-range] pollution
in national sustainable development strategies;]
OR
(a) [Encouraged Governments to adopt a preventive approach for reducing
transboundary air pollution in the context of national sustainable development
strategies;]
(b) Recommended that existing regional programmes monitoring the impact
of airborne pollution on forest health in affected countries should continue
and be extended to other [areas] [regions] as [required] [needed];
(c) Encouraged [Governments] [countries] to cooperate in activities
related to the impact of airborne pollutants on forest health, including the
dissemination of information to the public and the provision of access to
existing data by potential users, including managers and policy makers;
(d) [Encouraged Governments in other regions to enter into binding
agreements, [as appropriate] on the reduction of the impact of airborne
pollutants;]
(e) Urged [Governments] [countries] and international agencies to
continue specific research [and field data collection] related to the
socio-economic and environmental impact of airborne pollutants on forests,
including work on ecosystem functions where pollutant depositions threaten
sustainability. In this context, attention should also be given to promoting
technical cooperation, including exchange of information and technical
assistance in order to help capacity-building on research concerning the
impact of airborne pollution on forests;
(e) bis. Encouraged further work under existing monitoring systems on
how to assess and monitor national level criteria and indicators regarding the
impact of airborne pollutants on sustainable forest management.
E. Programme element I.5: Needs and requirements of countries
with low forest cover
Mandate
67. As defined by the Commission on Sustainable Development, the aim of
programme element I.5 is to "propose measures to address the needs and
requirements of developing countries and other countries with low forest cover
in order to promote the activities aimed at conserving the existing coverage,
with particular attention to the unique types of forests".8
Draft conclusions and proposals for action
1. General conclusions
68. The Panel recognized that there are both developed and developing
countries with low forest cover. Low forest cover [is due to] [can arise as a
result of] natural ecological conditions as well as to human activities, and
the situation is constantly changing. Some countries are actively expanding
their forest cover, while others are approaching qualification for entry into
the low forest cover category. The Panel also recognized that due to economic
factors and circumstances, the extent of the problem in developing countries
is much more severe than in developed countries.
69. In some countries, economic development has been historically associated
with the significant loss of forests, leading to disturbing consequences for
[present-day economic systems] in terms of land degradation and social,
cultural and economic hardship. The restricted area of forests in countries
with low forest cover results in reduced capacity for the production of timber
and the provision of goods and services, including the protection of
watersheds, the supply of fuelwood, the maintenance of biological diversity,
the loss of endemic species and the loss of recreation and amenity. Moreover,
many of the forest types in these countries are distinctive or even rare, and
require national as well as international protective measures, while the
proportion included in nationally designated protected areas is often below
average.
70. [The Panel stressed that special attention should be given to the needs
and requirements of countries with low forest cover, particularly developing
countries and countries with economies in transition, in addressing the
management, conservation and sustainable development of their forest
resources.] [The Panel stressed that in addressing, at both the national and
international levels, the management, conservation and sustainable development
of forest resources of countries with low forest cover, particularly
developing countries, the specific needs and requirements of those countries
should be fully taken into account.]
71. The Panel noted that many of the issues arising under this programme
element also arose elsewhere on its agenda, notably under programme elements
I.1 to I.4 and III.1. It also emphasized that actions under this programme
element needed to be [coordinated with] [supportive of] actions, inter alia,
under the Convention on Biological Diversity, the United Nations Framework
Convention on Climate Change, and the United Nations Convention to Combat
Desertification in Those Countries Experiencing Serious Drought and/or
Desertification, particularly in Africa.
2. Specific conclusions and proposals for action
[Definition of low forest cover]
72. The Panel recognized the seriousness of problems faced by both
developing and developed countries with low forest cover in satisfying their
needs for forest goods and services. [The Panel felt that there was a need
for a more precise identification of countries categorized as countries with
low forest cover. [The existing definitions of forest cover (for example,
those used by the FAO Global Forest Resources Assessment) namely, areas with
20 per cent of minimum crown cover, for developed countries, and 10 per cent
of minimum crown cover, for developing countries, do not have any scientific
foundation, nor do they allow for the comparability of data on a worldwide
basis.]]
72 bis. The Panel felt that there was a need for a more precise
identification of countries categorized as countries with low forest cover.
The definition of forest used by the Panel following the FAO Global Forest
Resources Assessment, is that it includes vegetation with 20 per cent and
10 per cent minimum tree crown cover for developed and developing countries,
respectively. This does not have a strong scientific foundation, nor does it
allow for the comparability of data on a worldwide basis. Furthermore, there
is no consistent way of classifying countries by the extent of forest, however
defined, into those with low forest cover and those with high forest cover.
Proposals for action
73. The Panel called upon FAO, in consultation with relevant organizations
and countries, as appropriate, to develop a [scientifically based] definition
of low forest cover, applicable to all countries, which would also be useful
in relation to the work on the Forest Resources Assessment, 2000.
[National forest programmes]
74. The Panel recognized that the needs of low- and [high-] [middle-] income
countries with low forest cover are likely to differ from those of high-income
countries and, consequently, different sets of actions to address these needs
will apply. The Panel stressed that this categorization should not result in
the underestimation and undervaluation of the problem. The Panel noted,
however, that national forest programmes (NFPs), [or other national forest
plans and strategies], are a good vehicle to partially address the needs and
requirements of countries with low forest cover.
75. The Panel recognized that the participatory and cross-sectoral nature of
NFPs may provide low forest cover countries with the possibility of analysing
and considering [all available] alternatives to satisfy diverse demands for
forest goods and services within and outside the forest sector.
76. [The Panel recognized that additional information may be necessary as a
basis for NFPs in countries with low forest cover, but this should not prevent
the preparation of interim plans based on information already available.]
Proposals for action
77. The Panel urged [Governments in] countries with low forest cover:
(a) To seek to ensure long-term security of forest goods and services
through the development of national forest programmes for the sustainable
management of all types of forests in accordance with the guiding principles
outlined under programme element I.1. [These programmes should address
production and conservation needs, using cross-sectoral and participatory
approaches, involving all interested parties, and taking into account the
subsistence and specific cultural needs and traditional rights of indigenous
[peoples] [people], forest dwellers and [other] local communities. Efficient
coordination mechanisms involving all interested parties should be developed
to ensure full participation in, and effective implementation of, NFPs;]
(b) [To define, as far as possible within the framework of the NFP
process [their national requirements for] a permanent forest estate (PFE), in
those countries that may have a need to define a PFE as a policy goal, taking
into account [of the many uses to which it would be put,] [the] current and
future needs for forest goods and services, the quantity as well as the
quality of existing forest ecosystems, availability of plantable land, systems
of land tenure and resource ownership [and the fair and equitable sharing of
benefits arising from the utilization of biological resources.] In defining
and deciding how best to establish and maintain a PFE, including the need for
forest plantations, substitutes and importation, countries should take into
account the subsistence and specific cultural needs of indigenous people,
local communities and forest dwellers;]
(c) [[When embarking on the enlargement of their forest estate by means]
[To consider the benefits] of forest plantations, [to plan and manage these]
to enhance production and provision of goods and services, while paying due
attention to all relevant social, cultural, economic and environmental
considerations in the selection of species, areas and silviculture systems
[and using]. N[n]ative species should be preferred where appropriate [where
feasible]. Special care should be taken to avoid replacing natural ecosystems
of high ecological and cultural values with forest plantations, [particularly
monocultures];]
(c) bis. To emphasize the natural regeneration of degraded forest areas
by involving communities and indigenous people in their protection and
management;
(d) [When considering non-wood substitutes or imports of forest
products, to fully analyse and take into account the related social, economic
and environmental implications and costs of such measures;]
(e) To [give special attention to the critical need to] establish [or
increase] networks of protected areas, buffer zones and [biological]
[ecological] corridors in order to conserve biodiversity, particularly in
unique types of forests. Close liaison with activities within the framework
of the Convention on Biological Diversity should be encouraged;
(f) [Particularly in developing countries and countries with economies
in transition,] to embark on capacity-building programmes based on the
analysis of institutions at all levels [to ensure efficiency and effective
participation in decision-making throughout the planning and implementation
processes, and] taking full advantage of the wealth of traditional knowledge
available in the country;
(g) To develop adequate research and information systems, including the
use of national level criteria and indicators. These activities should be
based on reliable evaluations and periodic assessments as well as sectoral and
cross-sectoral mechanisms for information exchange, in order to allow for
timely decisions related to national forest policies and programmes;
(h) [[In need of development assistance] [Urged Governments and donor
organizations] to further develop and test the concept of a forest partnership
agreement as a means to secure long-term commitments [between Governments and
international institutions.] [at the national and international levels.]
[International cooperation]
78. The Panel [noted] [emphasized] the importance of international
cooperation to address the sustainable management, conservation and
development of forests in low-income countries with low forest cover,
particularly developing countries, through financial assistance and the
transfer of technology as well as through the establishment of appropriate
research and information networks.
79. The Panel [noted [with concern]] [expressed concern] [that [currently
decreasing]] [the current] levels of official development assistance [and the
[increasing] focus of private investments in countries with abundant forest
resources, render] [have rendered] forest ecosystems in developing countries
with low forest cover [particularly vulnerable. In those countries] with low
forest cover, official development assistance [is and] will continue to be
[the most] [an] important source of funding, [and national forest programmes
should be considered the main vehicle to channel and secure the effectiveness
of the required financial and technical assistance.]
Proposals for action
80. The Panel:
(a) [Urged international organizations, in cooperation with national
Governments and international organizations, to [develop] [consider] efficient
[mechanisms] [ways] for international cooperation [in] [to] support [of] the
sustainable [development] [management] of forests in countries with low forest
cover, particularly through the exchange of information and transfer of
technology, and the sharing of successful experiences in increasing forest
cover;]
OR
(a) [Urged Governments as well as international organizations to
[develop efficient] [improve] mechanisms for international cooperation in
support of the sustainable development of forests in countries with low forest
cover, particularly through financial assistance, the transfer of technology
and know-how, as well as the exchange of information [and transfer of
technology], and the sharing of successful experiences in increasing forest
cover. The Panel also urged Governments to take into consideration the
provisions of the Convention to Combat Desertification;]
(b) Urged donor countries to [place greater emphasis on [supporting]
[support] developing countries and countries with economies in transition with
low forest cover, through ODA, provision of new and additional resources and
facilitating transfer of technology, in order to [ensure the conservation,]
[promote sustainable] management [and sustainable development] of their
forests;
(b) bis. Urged Governments and donor organizations to further develop
and test the concept of a forest partnership agreement as a means to secure
long-term commitments at the national and international levels;
(b) ter. Urged developed countries with low forest cover and endowed
with suitable land and climate conditions to take a firm lead in efforts
towards the greening of the world, in accordance with principle 8 (a) of the
Forest Principles, and urged developed countries with low forest cover, but
with limited land and unsuitable climatic conditions, to assist developing
countries through adequate and appropriate transfer of technology and
financial resources. Special efforts should be made in this regard towards
the provision of new and additional financial resources and technology
transfer for the substitution of wood-related products as a source of energy;
(b) quater. Urged donor countries as well as multilateral and
international organizations, to assist developing countries in their data
gathering and analysis activities, aimed at monitoring their forest resources.
F. Programme element II: International cooperation in financial
assistance and technology transfer
Mandate
81. As defined by the Commission on Sustainable Development, the aim of
programme element II is to "explore ways of improving the efficiency and
coordination of bilateral and multilateral assistance; and consider ways to
address the critical areas relating to the transfer and development of
environmentally sound technology on favourable terms as mutually agreed and
the mobilization of financial resources, including the provision of new and
additional resources with a view to assisting developing countries to pursue
policies and comprehensive strategies for achieving sustainable forest
management, recalling principles 10 and 11 of the Non-legally Binding
Authoritative Statement of Principles for a Global Consensus on the
Management, Conservation and Sustainable Development of all Types of Forests,
and the Rome Statement on Forestry agreed by Ministers responsible for Forests
in March 1995".9
Draft conclusions and proposals for action
1. General conclusions
82. The Panel emphasized that the issues of financial [assistance]
[resources] and transfer of technology are cross-cutting, interlinked and
essential for the achievement of [the management, conservation and sustainable
development of all types of forests] [sustainable forest management (SFM)],
particularly for developing countries and countries with economies in
transition. The Panel reiterated that these cross-cutting issues are critical
to progress in all other programme elements within its terms of reference.
Efforts to mobilize financial resources [from all sources, public and private,
domestic and external] [including the provision of new and additional
resources] should therefore be intensified.
82 bis. The Panel recognized that in developing countries domestic resources
for the financing, management, conservation and sustainable development of all
types of forest are scarce and international financial sources remain vital.
83. In proposing measures to address these issues, the Panel emphasized the
need to take into account principles 7, 8 (c), 9 (a), 10, 11 and 12 (a) to (c)
of the Forest Principles and relevant chapters of Agenda 21. The Panel
[[confirmed] [noted] that [a large] [there is an] [investment] gap between
existing resources and those necessary to achieve [sustainable forest
management (SFM)] [the management, conservation and sustainable development of
all types of forests] still remains for all types of finance and that these
gaps will need to be clarified.] [recognized that there is a need for greater
financial investments from all sources to achieve SFM, as well as a need to
improve the absorptive capacity of recipient countries to use financial
resources].
84. The Panel recognized that disinvestment continues on a huge scale so
that forest resources are being lost without being replaced and without an
adequate return to the forest sector. The Panel recognized that there is a
need to promote new and innovative forms of finance and [combine] [complement]
[facilitate] all forms of finance, at the public, private, international,
domestic and local levels and to combine them with existing ones, as well as
to ensure the predictability and continuity of flow of financial resources.
There is an important potential in innovative financial packages and new types
of public-private partnerships. [Recognizing the importance of all these,
however, does not in any way diminish the importance of international public
finance and existing commitments to it.] The financing needs of SFM at the
global and national levels must mainly be met by the revenue generated by the
forest sector itself, be it the public or private sector. Some countries with
valuable forest estates and stronger economies have a much greater potential
for generating private sector and domestic [public] investment than others.
The catalytic and leveraging roles of international public funding remain
essential for developing countries. The Panel also recognized that more
effective use of available finance is conducive to attracting additional
resources.
84 bis. The Panel recognized the central role that NFPs play as a policy tool
and as a means of promoting, prioritizing and coordinating financial
investments, both public and private.
2. Specific conclusions and proposals for action
Public finance
85. The provision to the developing countries of effective means, inter
alia, financial resources and technology, to achieve the management,
conservation and sustainable development of all types of forests should be
pursued in compliance with Agenda 21. In this respect, predictable levels of
funding to support long-term objectives in the management, conservation and
sustainable development of all types of forests, and the provision to
developing countries of substantial new and additional financial resources are
necessary.
86. ODA is a main source of external funding. The Panel recognized that the
principal aim of ODA funds is to alleviate poverty and that poverty as a main
cause of deforestation. [The Panel, however, expressed its concern that [ODA
levels] [funding levels including ODA] for SFM */ (*/ While some
delegations suggested replacing "SFM" by "the management, conservation and
sustainable development of all types of forests" throughout the text, other
delegations felt that this issue should be addressed on a case-by-case basis.
The inclusion of the appropriate wording is pending resolution of this problem
by the Panel.) [and conservation] are insufficient and declining.] [The
Panel expressed its concern that the level of ODA has been insufficient to
achieve SFM] [The Panel expressed its concern that SFM is not given sufficient
priority in ODA]. It stressed that efforts towards fulfilment of [all]
financial commitments [of Agenda 21, especially those contained in chapter 33]
[contained in chapter 33 of Agenda 21], is important for achieving SFM
worldwide and for protecting [strategic] [representative] forest ecosystems.
The continuing challenge to ensure that ODA is deployed [more efficiently and
effectively] is independent of trends in international public sector
financing. [ODA will continue to play an important role in supporting forest-
related activities in developing countries especially for activities for which
it is difficult to attract financing from other sources.] Given the
increasing demands on ODA, it is important that ODA funds for the forest
sector are used as efficiently as possible.
87. Efforts in developing countries aimed at raising [additional] financial
resources at the domestic level need to be strengthened and should also be
supported and supplemented from international sources, particularly in the
least developed countries and countries with low forest cover, as well as in
countries with significant forest areas. External sources of public funds,
particularly through international financial institutions and ODA, are
therefore [essential] [important] to finance forest activities including
capacity-building, as well as to leverage private-sector investment.
[Forest-related projects which have global environmental benefits should also
be supported through programmes of the Global Environment Facility (GEF)
relevant to biodiversity, climate change and international waters, as well as
other international financing sources.] [The Panel recognized that forest-
related projects to be supported through GEF programmes relevant to
biodiversity, climate change and international waters, are done under the
guidance provided by the conferences of the parties to international
instruments on those subjects.]
87 bis. It is relevant to examine different possibilities to enhance
international cooperation in the field of financing the management,
conservation and sustainable development of all types of forests. In this
respect, the Panel stressed the need for the developing countries to find
durable solutions to the debt problems of low- and middle-income developing
countries in order to provide them with the needed means for the management,
conservation and sustainable development of all types of forests. Other forms
of innovative financing should also be explored.
88. [Economic instruments (EIs)] [Market-based instruments (MBIs)] such as
taxes, levies, user fees and domestic public investments could generate
additional financial resources to support activities for sustainable forest
management and conservation. A whole range of options for [EIs] [MBIs]
relevant to specific national conditions warrants further examination.
Adequately valuing forest resources [and markets that reward SFM will promote
SFM] [will promote the management, conservation and sustainable development of
all types of forests] and generate needed public resources.
Proposals for action
89. The Panel:
(a) [Urged donor countries to increase the proportion of their ODA
contribution in support of programmes in both the forest and forest-related
sectors for [conservation,] SFM, and [forest-related industrial development to
increase the share of domestic resources allocated to SFM] [community-based
enterprises] and urged [recipient countries] [to prioritize forests] [to raise
the priority of forests] [to give priority to SFM] in programming the ODA
available to them;]
OR
(a) [Urged donor countries to increase the proportion of their ODA
contribution supporting programmes for the management, conservation and
sustainable development of all types of forests, including afforestation,
reforestation especially native species and related research, and the
promotion of non-wood forest products, especially in developing countries
where private investment has remained insufficient. The Panel also urged
recipient countries to prioritize forest activities or national resources
development strategies that favoured the management, conservation and
sustainable development of all types of forests in programming the ODA
available to them;]
(a) bis. Requested relevant United Nations organizations to clarify the
gap between existing resources and those necessary to achieve the management,
conservation and sustainable development of all types of forests, including
ODA resources;
(b) Urged Governments, [through their representatives in governing
bodies] [through the appropriate channels], to support, where appropriate,
increased and improved programmes for SFM [and conservation] in multilateral
organizations, [particularly] [including] the multilateral development banks,
whose programmes [should] include concessional loans;
(c) Called for greater emphasis on national capacity-building [and] [in]
the development of comprehensive national programmes and in international
cooperation programmes;
(c) bis. Urged donor agencies to finance national initiatives aimed at
developing NFPs in developing countries;
(d) Encouraged countries in a position to do so to continue introducing
and employing appropriate [economic] [market-based] instruments and incentives
from a range of options such as user fees, increased rent capture and levies,
as tools to mobilize [domestic] financial resources in support of SFM, as well
to reduce social costs and negative environmental impacts due to unsustainable
forest[ry] and land management practices;
(e) Invited [[UNDP and the World Bank to take the lead] [the Bretton
Woods institutions], together with other] relevant international
organizations, to further explore [innovative ways to use existing financial
mechanisms more effectively and] [possibilities] to generate additional
forest-specific public and private financial resources at [the domestic as
well as at] the international level.
Private sector investment
90. The Panel noted that, in general, private capital flows are growing and
are increasingly greater than relatively constant public funding, taking into
account their uneven distribution among developing countries. [This trend is
also visible in the case of private investment in forests.] The Panel
recognized, therefore, that it is critical for countries to take the necessary
measures to introduce appropriate policies and create an enabling environment
to attract private sector investment and to ensure that this investment
contributes to [SFM [including protection and conservation of forest
resources]] [the management, conservation and sustainable development of all
types of forests]. In addition, policies that encourage local community
investment in [SFM] [the management, conservation and sustainable development
of all types of forests] in particular those relating to long-term land tenure
and usufruct rights could mobilize significant local financing. Measures that
encourage private sector activities towards [SFM] [the management,
conservation and sustainable development of all types of forests] include
[[voluntary] codes of conduct for SFM,] strengthening national regulations and
enforcement, full pricing */ (*/ United States of America; Group of 77.)
of renewable resources, and various incentives for better forest management
practices. The potential of voluntary codes of conduct should be explored in
this regard. Policies and regulations should also be carefully evaluated
before implementation to avoid negative social and environmental impacts and
market distortions. At the sectoral level, market failures create
disincentives for investments. Priority in policy design should be given to
the correction of these failures, including those outside the forest sector.
Proposals for action
91. The Panel:
(a) [Encouraged all countries to formulate policies, regulations and
incentives that favour forestry practices that are consistent with [SFM] [the
management, conservation and sustainable development of all types of
forests], **/ (**/ United States of America; Group of 77.) including
strengthening national regulations and enforcement to attract private sector
investments.] [Encouraged countries to promote full pricing of renewable
resources and to formulate policies and incentives as well as to strengthen
and enforce national regulations that favour forestry practices that are
consistent with SFM]. [Formulation of [voluntary] codes of conduct [in
cooperation with or] by the private sector should be further examined] [In
this context, voluntary codes of sustainable forest management to guide
investments, concessions and forest management should be developed in
cooperation with the private sector and all other major groups, including
indigenous people and local communities;]
(b) Invited developing countries [to adjust their policies and
regulations] to create a favourable environment to attract domestic and
foreign private sector, as well as local community, investments for SFM, and
to attract environmentally sound forest-based industries, reforestation and
non-wood forest product industries [as well as] for the conservation and
protection of forests;
(c) [[Called upon] [Invited] developed countries to [consider]
formulate[ing] and create[ing] incentives, including [tax breaks,] loan and
investment guarantees, to encourage their private sector to act consistently
with best practices and invest in sustainable management [and utilization] of
all types of forests in developing countries as well as countries with
economies in transition.]
Community sector investment
92. Community financing is an important element in enhancing the sustained
productivity of forest resources. With appropriate policy changes there is a
real potential for gaining financial contributions from local communities.
Experience suggests that despite their low level of income, many forest-
dependent communities can mobilize substantial labour, materials and capital
resources for forest development.
Proposals for action
93. The Panel encouraged countries to emphasize community financing as a
fundamental strategy to respond to the need for sustainable resource
mobilization to enhance forest productivity and to establish supportive policy
and programmatic mechanisms and instruments to enable local investments, in
cash or kind, in forest development.
Technology transfer
94. The Panel stressed that [technology transfer, development and exchange]
[transfer of environmentally sound technology], [as a component of public and
private investments,] plays an important role in the forest sector and as a
part of strategies for enabling countries to [manage, conserve and]
sustainably [develop] [manage] their forests through the application of
appropriate environmentally sound ["hard and soft"] technologies, and should
take into account principle 11 of the Forest Principles.
95. The Panel noted that there is an unprecedented accumulation of
technological capability in the world today, including for forestry. However,
much of it, including those technologies in the public domain, remains largely
unrecognized, underutilized and inadequately [shared] [disseminated].
[Nevertheless, technological innovations are critical for the sustainable
management [and utilization as well as conservation] of forests in the context
of present and future challenges facing forests, and ever-increasing diverse
demands placed on forests.]
96. The Panel noted that a technology needs assessment, [as one of many
tools for assessing technologies, which could facilitate technology transfer,
requires] [undertaken in] consultation with all interested parties involved in
SFM [such as government, non-governmental organizations, the private sector,
scientists, and local communities, and] could be [employed] [a useful tool] to
identify appropriate environmentally sound technologies that are required for
the sustainable [development], management, [utilization and conservation] of
forests.
97. [Owing to similarity in terms of forest types, institutions and culture,
there is a considerable potential for South-South cooperation [in conjunction
with, and as a complement to North-South cooperation] in technology
transfer].] [As technology mainly resides in the North, in particular
technologies in the private domain, there is considerable potential for
North-South cooperation in technology transfer, under favourable conditions,
including on concessional and preferential terms for developing countries.]
98. Strengthening national research and training institutions at the
national and international levels, and improving knowledge sharing and
extension mechanisms [is a] are critical [prerequisites] with respect to
increasing absorptive capacity for technology transfer and ensuring adequate
capability to adapt these technologies to local conditions. Forest-related
research should be followed up by appropriate extension activities.
Proposals for action
99. The Panel:
(a) Requested that developed countries, the international organizations
and multilateral donors facilitate [and catalyse] [public and private] forest-
related technology transfer [by public and private means];
(b) [Urged] [Encouraged] countries to assess and explicitly identify
technological requirements of their countries in order to achieve sustainable
management, [conservation and sustainable development] of their forests. The
assessment and identification of specific technology needs should be
consistent with recognized priorities within national forest programmes, and
other national policy frameworks;
(c) Called upon countries to formulate policies and incentives and
create an enabling environment that encourage [the private sector] [all
concerned] to develop and use environmentally sound technologies;
(d) Called for the promotion of [North-South, South-South as well as
trilateral North-South-South] cooperation in forest-related technology
transfer through public and private sector [investment,] joint ventures,
exchange of information and greater networking among forest-related
institutions. Consideration should be given to related work being conducted
in other international forums, notably the Conference of the Parties to the
Convention on Biological Diversity;
(e) [Agreed that priority in technology transfer and capacity-building
should be established and continually reviewed [given to the following areas]
[and could include]: valuation of forest services, information dissemination
to improve forest and land-use planning and improvement of forest yields;
technology and methods that reduce environmental damage due to current
forestry practices; conservation and protection; species research, including
biotechnology, for tree improvement for rehabilitation, reforestation and
nursery development, and native species research; technology and methods for
enhancing forest values, including biological diversity; incorporation of
indigenous knowledge in forest management, utilization, rehabilitation and
regeneration; new and renewable sources of energy, in particular fuelwood and
its appropriate substitutes; environmentally sound [logging] [forest
harvesting] technologies; enhancement of technologies regarding wood
processing; development of new non-wood and wood forest products; promotion of
techniques and design so as to add more aggregate value to forest products;
and development and implementation of national forest strategies; */ (*/ The
Panel is invited to add new elements to this list.)
OR
(e) [Agreed that bilateral and multilateral donors should give priority
in financing technology development, exchange and transfer to the assessments
made by countries of their technological requirements for achieving SFM;]
Research **/
(**/ It was suggested that paragraphs 16 (f) to (i), together with other
research-related paragraphs, could constitute a separate section in the final
report of the Panel.)
(f) [Agreed on the need for a more [comprehensive] [focused] approach in
research to support SFM and conservation, and that urgent research priorities
include: development of criteria and indicators for SFM, including their
testing as well as field level, pilot-scale implementation; integrated
site-specific socio-economic and biophysical studies to understand the
relationship between human development and forests; periodic assessment of
forests; examination of trends of supply of and demand for forest products;
forest policy at the national, regional and global levels; environmentally
sound technologies of forest-based industries; consideration of the impacts of
pervasive external stresses such as climate change, ozone depletion and air
pollution on long-term health, productivity and biodiversity of forests;
forest assessment and valuation; community participation; forest conservation;
research on the human impact on protected forest areas and cost-effective
processing techniques;]
(g) [Called upon countries, research institutions and agencies to make
use of participatory rural appraisal and other participatory techniques to
determine research and technology development agendas for increasing
productivity appropriate to community-level needs;]
(h) [Requested the Centre for International Forestry Research (CIFOR),
the International Centre for Research in Agroforestry (ICRAF), the
International Union of Forestry Research Organizations (IUFRO), FAO, the
United Nations Educational, Scientific and Cultural Organization (UNESCO),
ITTO and the International Boreal Forest-Research Association (IBFRA), in
consultation with a group of internationally recognized experts, to propose
measures to overcome inadequate research capacity in the developing countries
and to develop and adapt technologies for SFM. Measures to be considered
could include strengthening existing national research institutions and
subregional and regional networks; joint research ventures; approaches to
enhancing and strengthening the effectiveness of the participation of existing
international, regional, subregional and national forest research institutions
in an international network dedicated to the conservation, sustainable
development, management and utilization of forests and forest policy research;
and creation of appropriate mechanisms that enable research findings to reach
policy and field levels more effectively for concrete action;]
OR replace subparagraphs (f), (g) and (h) with the following text:
[Agreed on the need for a more comprehensive approach in research to
support the management, conservation and sustainable development of all types
of forests, including, inter alia, the strengthening of existing national
research institutions, subregional and regional networks; joint research
ventures; approaches to enhancing and strengthening the participation of
existing international, regional, subregional and national forest research
institutions in an international network dedicated to the conservation,
sustainable development, management and utilization of forests and forest
policy research; and creation of appropriate mechanisms that enable research
findings to reach policy and field levels more effectively for concrete
action;]
(i) [Called for a comprehensive intergovernmental-level examination of
issues concerning forest-related technology transfer and research priorities.]
[Coordination] [Cooperation]
100. The Panel emphasized that in-country coordination and cooperation among
donors are crucial [in view of [limited financial resources] and the need] to
optimize [the use of existing] available funds. National forest programmes
(NFPs) [provide a good basis in many countries for setting priorities on
international cooperation including] [should provide the basic framework for
national and international cooperation including setting priorities] for
financial assistance and technology transfer between recipient countries and
donors.
Proposals for action
101. [For national-level coordination in recipient countries the Panel] [At
the national level the Panel]:
(a) [Invited] [Urged] countries to identify a national authority to be
responsible for in-country coordination, with the option of seeking assistance
from external sources;
(b) [Invited] [Encouraged] countries to establish country-driven NFPs
that include priority needs and that serve as a process and [framework for]
[overall framework for forest-related policies and actions including]
coordination of [financing and] international cooperation;
(c) [Invited countries to select an external agency to [support] [assist
Governments with] in-country donor coordination;]
(c) bis. Invited countries to give priority to SFM in programming the
ODA available to them;
(d) Encouraged decentralized planning and implementation of
[development] [SFM] activities [, wherever possible,] at [the district or
other] appropriate [local] [sub-national] levels, involving incentives to the
private sector, non-governmental organizations and community-based
organizations;
(e) Encouraged all concerned national bodies including [finance
ministries,] the private sector, national and commercial banks, environmental
and forestry funds, grass-roots lending associations, forest industries,
forest owners, sectoral authorities at the national and subnational levels and
external funding organizations to be involved in the planning, implementation
and monitoring processes;
(f) [Called for] [Encouraged] the pooling of national resources
including funds, technologies and scientific and human resources, where
appropriate and applicable as a means of improving the efficiency and
effectiveness of resources.
102. [For] [At the] international level [coordination] the Panel:
(a) Called for enhanced coordination, collaboration and complementarity
of activities among bilateral and multilateral donors as well as international
instruments related to forests, notably the Convention on Biological Diversity
and the United Nations Framework Convention on Climate Change, including
through the establishment of a continuing forum for forest policy
discussion; */ (*/ To be considered under category V.)
(a) bis. Called on Governments, international organizations and donor
countries to develop a shared vision of SFM, in order to provide common
objectives for coordination;
(b) Called for the provision of a better flow, to both the policy and
operational levels, of [synthesized] information on programme progress, policy
development, best practices and lending strategies, including through the
establishment of specialized databases;
(c) [[Called for] [Considered that] the development of appropriate
indicators for monitoring and evaluating the adequacy and the effectiveness of
programmes and projects supported by international cooperation [in financial
assistance and technology transfer] [should be explored] as a priority
activity;]
(d) Encouraged [countries to explore] [exploration of] the feasibility
of innovative financial packages, such as [special] [voluntary] [partnerships
for forests] [partnerships for SFM], [based on pooled resources] [supporting
[comprehensive forest programmes] [national forest programmes]], through
further study and national pilot programmes;
(e) [Called for the establishment of mandatory coordination (in-country
and at the international level) among intergovernmental organizations within
the United Nations system.]
Information systems
103. The Panel emphasized the need to review and improve existing information
systems. Attention should be given to worldwide access and information
systems that encourage the effective implementation of national forest
programmes, increased private sector investment, efficient development and
transfer of appropriate technologies, and improved [coordination]
[cooperation]. [Internet-based information systems would allow easy access
and information-sharing among multilateral agencies, country institutions,
non-governmental organizations and other interested parties.]
Proposals for action
104. The Panel invited relevant multilateral [forest] agencies and
international organizations to review and initiate the development of improved
information systems that support activities for [sustainable forest
management] [the management, conservation and sustainable development of all
types of forests], [particularly so as] [in particular] to encourage effective
implementation of national forest programmes, increased private sector
investment and improved cooperation, efficient development and transfer of
appropriate technologies [, and improved coordination] [as well as the
provision of new and additional financial resources] and data sharing among
interested parties. In particular the Panel invited FAO to develop a global
"depository box" type of information system, available technologies and
potential funding sources for SFM, using, inter alia, the databases and
experiences of CIFOR, ICRAF, IBFRA and other relevant research institutions.
G. Programme element III.1 (a): Assessment of the multiple
benefits of all types of forests
Mandate
105. As defined by the Commission on Sustainable Development, the aim of
programme element III.1 (a) [and (b)] is to review existing periodic
assessment of forests, including relevant socio-economic and environmental
factors, at the global level;