Agenda 21 – Chapter 11

COMBATING DEFORESTATION
PROGRAMME AREAS
A. Sustaining the multiple roles and functions of all types of forests, forest lands and woodlands

Basis for action

11.1. There are major weaknesses in the policies, methods and mechanisms adopted to support and develop
the multiple ecological, economic, social and cultural roles of trees, forests and forest lands. Many
developed countries are confronted with the effects of air pollution and fire damage on their forests.
More effective measures and approaches are often required at the national level to improve and
harmonize policy formulation, planning and programming; legislative measures and instruments;
development patterns; participation of the general public, especially women and indigenous people;
involvement of youth; roles of the private sector, local organizations, non-governmental
organizations and cooperatives; development of technical and multidisciplinary skills and quality of
human resources; forestry extension and public education; research capability and support;
administrative structures and mechanisms, including intersectoral coordination, decentralization and
responsibility and incentive systems; and dissemination of information and public relations. This is
especially important to ensure a rational and holistic approach to the sustainable and environmentally
sound development of forests. The need for securing the multiple roles of forests and forest lands
through adequate and appropriate institutional strengthening has been repeatedly emphasized in many
of the reports, decisions and recommendations of FAO, ITTO, UNEP, the World Bank, IUCN and
other organizations.

Objectives

11.2. The objectives of this programme area are as follows:

a. To strengthen forest-related national institutions, to enhance the scope and effectiveness
of activities related to the management, conservation and sustainable development of
forests, and to effectively ensure the sustainable utilization and production of forests'
goods and services in both the developed and the developing countries; by the year 2000,
to strengthen the capacities and capabilities of national institutions to enable them to
acquire the necessary knowledge for the protection and conservat ion of forests, as well as
to expand their scope and, correspondingly, enhance the effectiveness of programmes and
activities related to the management and development of forests;

b. To strengthen and improve human, technical and professional skills, as well as expertise
and capabilities to effectively formulate and implement policies, plans, programmes,
research and projects on management, conservation and sustainable development of all
types of forests and forest-based resources, and forest lands inclusive, as well as other
areas from which forest benefits can be derived.
Activities
(a) Management-related activities

11.3 Governments at the appropriate level, with the support of regional, subregional and international
organizations, should, where necessary, enhance institutional capability to promote the multiple roles
and functions of all types of forests and vegetation inclusive of other related lands and forest-based
resources in supporting sustainable development and environmental conservation in all sectors. This
should be done, wherever possible and necessary, by strengthening and/or modifying the existing
structures and arrangements, and by improving cooperation and coordination of their respective roles.
Some of the major activities in this regard are as follows:
a. Rationalizing and strengthening administrative structures and mechanisms, including
provision of adequate levels of staff and allocation of responsibilities, decentralization of
 decision-making, provision of infrastructural facilities and equipment, intersectoral
coordination and an effective system of communication;

b. Promoting participation of the private sector, labour unions, rural cooperatives, local
communities, indigenous people, youth, women, user groups and non-governmental
organizations in forest-related activities, and access to information and training programmes
within the national context;

c. Reviewing and, if necessary, revising measures and programmes relevant to all types of
forests and vegetation, inclusive of other related lands and forest-based resources, and relating
them to other land uses and development policies and legislation; promoting adequate
legislation and other measures as a basis against uncontrolled conversion to other types of
land uses;

d. Developing and implementing plans and programmes, including definition of national and, if
necessary, regional and subregional goals, programmes and criteria for their implementation
and subsequent improvement;

e. Establishing, developing and sustaining an effective system of forest extension and public
education to ensure better awareness, appreciation and management of forests with regard to
the multiple roles and values of trees, forests and forest lands;

f. Establishing and/or strengthening institutions for forest education and training, as well as
forestry industries, for developing an adequate cadre of trained and skilled staff at the
professional, technical and vocational levels, with emphasis on youth and women;

g. Establishing and strengthening capabilities for research related to the different aspects of
forests and forest products, for example, on the sustainable management of forests, research
on biodiversity, on the effects of air-borne pollutants, on traditional uses of forest resources
by local populations and indigenous people, and on improving market returns and other non-
market values from the management of forests.
(b) Data and information

11.4. Governments at the appropriate level, with the assistance and cooperation of international,
regional, subregional and bilateral agencies, where relevant, should develop adequate databases and
baseline information necessary for planning and programme evaluation. Some of the more specific
activities include the following:
a. Collecting, compiling and regularly updating and distributing information on land
classification and land use, including data on forest cover, areas suitable for afforestation,
endangered species, ecological values, traditional/indigenous land use values, biomass and
productivity, correlating demographic, socio-economic and forest resources information at the
micro- and macro-levels, and undertaking periodic analyses of forest programmes;

b. Establishing linkages with other data systems and sources relevant to supporting forest
management, conservation and development, while further developing or reinforcing existing
systems such as geographic information systems, as appropriate;

c. Creating mechanisms to ensure public access to this information.

(c) International and regional cooperation and coordination

11.5. Governments at the appropriate level and institutions should cooperate in the provision of
expertise and other support and the promotion of international research efforts, in particular with a
view to enhancing transfer of technology and specialized training and ensuring access to experiences
and research results. There is need for strengthening coordination and improving the performance of
existing forest-related international organizations in providing technical cooperation and support to
interested countries for the management, conservation and sustainable development of forests.
Means of implementation

(a) Financial and cost evaluation

11.6. The secretariat of the Conference has estimated the average total annual cost (1993-2000) of
implementing the activities of this programme to be about $2.5 billion, including about $860 million
from the international community on grant or concessional terms. These are indicative and order-of-
magnitude estimates only and have not been reviewed by Governments. Actual costs and financial
terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and
programmes Governments decide upon for implementation.

(b) Scientific and technological means

11.7. The planning, research and training activities specified will form the scientific and technological
means for implementing the programme, as well as its output. The systems, methodology and know-
how generated by the programme will help improve efficiency. Some of the specific steps involved
should include:
a. Analysing achievements, constraints and social issues for supporting programme
formulation and implementation;

b. Analysing research problems and research needs, research planning and implementation
of specific research projects;

c. Assessing needs for human resources, skill development and training;

d. Developing, testing and applying appropriate methodologies/approaches in implementing

forest programmes and plans.
(c) Human resource development

11.8. The specific components of forest education and training will effectively contribute to human
resource development. These include:
a. Launching of graduate and post-graduate degree, specialization and research
programmes;

b. Strengthening of pre-service, in-service and extension service training programmes at the

technical and vocational levels, including training of trainers/teachers, and developing
curriculum and teaching materials/methods;

c. Special training for staff of national forest-related organizations in aspects such as project
formulation, evaluation and periodical evaluations.
(d) Capacity-building

11.9. This programme area is specifically concerned with capacity-building in the forest sector and all
programme activities specified contribute to that end. In building new and strengthened capacities, full
advantage should be taken of the existing systems and experience.

B. Enhancing the protection, sustainable management and conservation of all forests, and the
greening of degraded areas, through forest rehabilitation, afforestation, reforestation and other
rehabilitative means

Basis for action

11.10. Forests world wide have been and are being threatened by uncontrolled degradation and
conversion to other types of land uses, influenced by increasing human needs; agricultural expansion;
and environmentally harmful mismanagement, including, for example, lack of adequate forest-fire
control and anti-poaching measures, unsustainable commercial logging, overgrazing and unregulated
browsing, harmful effects of airborne pollutants, economic incentives and other measures taken by
other sectors of the economy. The impacts of loss and degradation of forests are in the form of soil
erosion; loss of biological diversity, damage to wildlife habitats and degradation of watershed areas,
deterioration of the quality of life and reduction of the options for development.

11.11. The present situation calls for urgent and consistent action for conserving and sustaining forest
resources. The greening of suitable areas, in all its component activities, is an effective way of
increasing public awareness and participation in protecting and managing forest resources. It should
include the consideration of land use and tenure patterns and local needs and should spell out and
clarify the specific objectives of the different types of greening activities.

Objectives

11.12. The objectives of this programme area are as follows:

a. To maintain existing forests through conservation and management, and sustain and expand
areas under forest and tree cover, in appropriate areas of both developed and developing
countries, through the conservation of natural forests, protection, forest rehabilitation,
regeneration, afforestation, reforestation and tree planting, with a view to maintaining or
restoring the ecological balance and expanding the contribution of forests to human needs and
welfare;

b. To prepare and implement, as appropriate, national forestry action programmes and/or plans
for the management, conservation and sustainable development of forests. These programmes
and/or plans should be integrated with other land uses. In this context, country-driven national
forestry action programmes and/or plans under the Tropical Forestry Action Programme are
currently being implemented in more than 80 countries, with the support of the international
community;

c. To ensure sustainable management and, where appropriate, conservation of existing and

future forest resources;

d. To maintain and increase the ecological, biological, climatic, socio-cultural and economic
contributions of forest resources;

e. To facilitate and support the effective implementation 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, adopted by the United Nations Conference on
Environment and Development, and on the basis of the implementation of these principles to
consider the need for and the feasibility of all kinds of appropriate internationally agreed
arrangements to promote international cooperation on forest management, conservation and
sustainable development of all types of forests, including afforestation, reforestation and
rehabilitation.
Activities

(a) Management-related activities

11.13. Governments should recognize the importance of categorizing forests, within the framework of
long-t erm forest conservation and management policies, into different forest types and setting up
sustainable units in every region/watershed with a view to securing the conservation of forests.
Governments, with the participation of the private sector, non-governmental organizations, local
community groups, indigenous people, women, local government units and the public at large, should
act to maintain and expand the existing vegetative cover wherever ecologically, socially and
economically feasible, through technical cooperation and other forms of support. Major activities to be
considered include:
a. Ensuring the sustainable management of all forest ecosystems and woodlands, through
improved proper planning, management and timely implementation of silvicultural
operations, including inventory and relevant research, as well as rehabilitation of degraded
natural forests to restore productivity and environmental contributions, giving particular
attention to human needs for economic and ecological services, wood-based energy,
agroforestry, non-timber forest products and services, watershed and soil protection, wildlife
management, and forest genetic resources;

b. Establishing, expanding and managing, as appropriate to each national context, protected area
systems, which includes systems of conservation units for their environmental, social and
spiritual functions and values, including conservation of forests in representative ecological
systems and landscapes, primary old-growth forests, conservation and management of
wildlife, nomination of World Heritage Sites under the World Heritage Convention, as
appropriate, conservation of genetic resources, involving in situ and ex situ measures and
undertaking supportive measures to ensure sustainable utilization of biological resources and
conservation of biological diversity and the traditional forest habitats of indigenous people,
forest dwellers and local communities;

c. Undertaking and promoting buffer and transition zone management;

d. Carrying out revegetation in appropriate mountain areas, highlands, bare lands, degraded farm
lands, arid and semi-arid lands and coastal areas for combating desertification and preventing
erosion problems and for other protective functions and national programmes for
rehabilitation of degraded lands, including community forestry, social forestry, agroforestry
and silvipasture, while also taking into account the role of forests as national carbon reservoirs
and sinks;

e. Developing industrial and non-industrial planted forests in order to support and promote
national ecologically sound afforestation and reforestation/regeneration programmes in
suitable sites, including upgrading of existing planted forests of both industrial and non-
industrial and commercial purpose to increase their contribution to human needs and to offset
pressure on primary/old growth forests. Measures should be taken to promote and provide
intermediate yields and to improve the rate of returns on investments in planted forests,
through interplanting and underplanting valuable crops;

f. Developing/strengthening a national and/or master plan for planted forests as a priority,

indicating, inter alia, the location, scope and species, and specifying areas of existing planted
forests requiring rehabilitation, taking into account the economic aspect for future planted
forest development, giving emphasis to native species;

g. Increasing the protection of forests from pollutants, fire, pests and diseases and other human-
made interferences such as forest poaching, mining and unmitigated shifting cultivation, the
uncontrolled introduction of exotic plant and animal species, as well as developing and
accelerating research for a better understanding of problems relating to the management and
regeneration of all types of forests; strengthening and/or establishing appropriate measures to
assess and/or check inter-border movement of plants and related materials;

h. Stimulating development of urban forestry for the greening of urban, peri-urban and rural
human settlements for amenity, recreation and production purposes and for protecting trees
and groves;

i. Launching or improving opportunities for particpation of all people, including youth, women,
indigenous people and local communities in the formulation, development and
 implementation of forest-related programmes and other activities, taking due account of the
local needs and cultural values;

j. Limiting and aiming to halt destructive shifting cultivation by addressing the underlying
social and ecological causes.
(b) Data and information

11.14. Management-related activities should involve collection, compilation and analysis of

data/information, including baseline surveys. Some of the specific activities include the following:
a. Carrying out surveys and developing and implementing land-use plans for appropriate
greening/planting/afforestation/reforestation/forest rehabilitation;

b. Consolidating and updating land-use and forest inventory and management information for
management and land-use planning of wood and non-wood resources, including data on
shifting cultivation and other agents of forest destruction;

c. Consolidating information on genetic resources and related biotechnology, including surveys

and studies, as necessary;

d. Carrying out surveys and research on local/indigenous knowledge of trees and forests and
their uses to improve the planning and implementation of sustainable forest management;

e. Compiling and analysing research data on species/site interaction of species used in planted
forests and assessing the potential impact on forests of climatic change, as well as effects of
forests on climate, and initiating in-depth studies on the carbon cycle relating to different
forest types to provide scientific advice and technical support;

f. Establishing linkages with other data/information sources that relate to sustainable

management and use of forests and improving access to data and information;

g. Developing and intensifying research to improve knowledge and understanding of problems

and natural mechanisms related to the management and rehabilitation of forests, including
research on fauna and its interrelation with forests;

h. Consolidating information on forest conditions and site-influencing immissions and

emissions.
(c) International and regional cooperation and coordination

11.15. The greening of appropriate areas is a task of global importance and impact. The international and
regional community should provide technical cooperation and other means for this programme area.
Specific activities of an international nature, in support of national efforts, should include the
following:
a. Increasing cooperative actions to reduce pollutants and trans-boundary impacts affecting the
health of trees and forests and conservation of representative ecosystems;

b. Coordinating regional and subregional research on carbon sequestration, air pollution and
other environmental issues;

c. Documenting and exchanging information/experience for the benefit of countries with similar
problems and prospects;

d. Strengthening the coordination and improving the capacity and ability of intergovernmental
organizations such as FAO, ITTO, UNEP and UNESCO to provide technical support for the
management, conservation and sustainable development of forests, including support for the
negotiation of the International Tropical Timber Agreement of 1983, due in 1992/93.
Means of implementation

(a) Financial and cost evaluation

11.16. The secretariat of the Conference has estimated the average total annual cost (1993-2000) of
implementing the activities of this programme to be about $10 billion, including about $3.7 billion
from the international community on grant or concessional terms. These are indicative and order-of-
magnitude estimates only and have not been reviewed by Governments. Actual costs and financial
terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and
programmes Governments decide upon for implementation.

(b) Scientific and technological means

11.17. Data analysis, planning, research, transfer/development of technology and/or training activities
form an integral part of the programme activities, providing the scientific and technological means of
implementation. National institutions should:
a. Develop feasibility studies and operational planning related to major forest activities;

b. Develop and apply environmentally sound technology relevant to the various activities listed;

c. Increase action related to genetic improvement and application of biotechnology for

improving productivity and tolerance to environmental stress and including, for example, tree
breeding, seed t echnology, seed procurement networks, germ-plasm banks, "in vitro"
techniques, and in situ and ex situ conservation.
(c) Human resource development

11.18. Essential means for effectively implementing the activities include training and development of
appropriate skills, working facilities and conditions, public motivation and awareness. Specific
activities include:
a. Providing specialized training in planning, management, environmental conservation,
biotechnology etc.;

b. Establishing demonstration areas to serve as models and training facilities;

c. Supporting local organizations, communities, non-governmental organizations and private

land owners, in particular women, youth, farmers and indigenous people/shifting cultivators,
through extension and provision of inputs and training.
(d) Capacity-building

11.19. National Governments, the private sector, local organizations/communities, indigenous people,
labour unions and non-governmental organizations should develop capacities, duly supported by
relevant international organizations, to implement the programme activities. Such capacities should be
developed and strengthened in harmony with the programme activities. Capacity-building activities
include policy and legal frameworks, national institution building, human resource development,
development of research and technology, development of infrastructure, enhancement of public
awareness etc.

C. Promoting efficient utilization and assessment to recover the full valuation of the goods and
services provided by forests, forest lands and woodlands

Basis for action

11.20. The vast potential of forests and forest lands as a major resource for development is not yet fully
realized. The improved management of forests can increase the production of goods and services and,
 in particular, the yield of wood and non-wood forest products, thus helping to generate additional
employment and income, additional value through processing and trade of forest products, increased
contribution to foreign exchange earnings, and increased return on investment. Forest resources, being
renewable, can be sustainably managed in a manner that is compatible with environmental
conservation. The implications of the harvesting of forest resources for the other values of the forest
should be taken fully into consideration in the development of forest policies. It is also possible to
increase the value of forests through non-damaging uses such as eco-tourism and the managed supply
of genetic materials. Concerted action is needed in order to increase people's perception of the value of
forests and of the benefits they provide. The survival of forests and their continued contribution to
human welfare depends to a great extent on succeeding in this endeavour.

Objectives

11.21. The objectives of this programme area are as follows:

a. To improve recognition of the social, economic and ecological values of trees, forests and
forest lands, including the consequences of the damage caused by the lack of forests; to
promote methodologies with a view to incorporating social, economic and ecological values
of trees, forests and forest lands into the national economic accounting systems; to ensure
their sustainable management in a way that is consistent with land use, environmental
considerations and development needs;

b. To promote efficient, rational and sustainable utilization of all types of forests and vegetation
inclusive of other related lands and forest-based resources, through the development of
efficient forest-based processing industries, value-adding secondary processing and trade in
forest products, based on sustainably managed forest resources and in accordance with plans
that integrate all wood and non-wood values of forests;

c. To promote more efficient and sustainable use of forests and trees for fuelwood and energy
supplies;

d. To promote more comprehensive use and economic contributions of forest areas by

incorporating eco-tourism into forest management and planning.
Activities

(a) Management-related activities

11.22. Governments, with the support of the private sector, scientific institutions, indigenous people,
non-governmental organizations, cooperatives and entrepreneurs, where appropriate, should undertake
the following activities, properly coordinated at the national level, with financial and technical
cooperation from int ernational organizations:
a. Carrying out detailed investment studies, supply-demand harmonization and environmental
impact analysis to rationalize and improve trees and forest utilization and to develop and
establish appropriate incentive schemes and regulatory measures, including tenurial
arrangements, to provide a favourable investment climate and promote better management;

b. Formulating scientifically sound criteria and guidelines for the management, conservation and
sustainable development of all types of forests;

c. Improving environmentally sound methods and practices of forest harvesting, which are
ecologically sound and economically viable, including planning and management, improved
use of equipment, storage and transportation to reduce and, if possible, maximize the use of
waste and improve value of both wood and non-wood forest products;

d. Promoting the better use and development of natural forests and woodlands, including planted
forests, wherever possible, through appropriate and environmentally sound and economically
 viable activities, including silvicultural practices and management of other plant and animal
species;

e. Promoting and supporting the downstream processing of forest products to increase retained
value and other benefits;

f. Promoting/popularizing non-wood forest products and other forms of forest resources, apart
from fuelwood (e.g., medicinal plants, dyes, fibres, gums, resins, fodder, cultural products,
rattan, bamboo) through programmes and social forestry/participatory forest activities,
including research on their processing and uses;

g. Developing, expanding and/or improving the effectiveness and efficiency of forest-based

processing industries, both wood and non-wood based, involving such aspects as efficient
conversion technology and improved sustainable utilization of harvesting and process
residues; promoting underutilized species in natural forests through research, demonstration
and commercialization; promoting value-adding secondary processing for improved
employment, income and ret ained value; and promoting/improving markets for, and trade in,
forest products through relevant institutions, policies and facilities;

h. Promoting and supporting the management of wildlife, as well as eco-tourism, including

farming, and encouraging and supporting the husbandry and cultivation of wild species, for
improved rural income and employment, ensuring economic and social benefits without
harmful ecological impacts;

i. Promoting appropriate small-scale forest-based enterprises for supporting rural development

and local entrepreneurship;

j. Improving and promoting methodologies for a comprehensive assessment that will capture the
full value of forests, with a view to including that value in the market-based pricing structure
of wood and non-wood based products;

k. Harmonizing sustainable development of forests with national development needs and trade
policies that are compatible with the ecologically sound use of forest resources, using, for
example, the ITTO Guidelines for Sustainable Management of Tropical Forests;

l. Developing, adopting and strengthening national programmes for accounting the economic
and non-economic value of forests.
(b) Data and information

11.23. The objectives and management -related activities presuppose data and information analysis,
feas ibility studies, market surveys and review of technological information. Some of the relevant
activities include:
a. Undertaking analysis of supply and demand for forest products and services, to ensure
efficiency in their utilization, wherever necessary;

b. Carrying out investment analysis and feasibility studies, including environmental impact
assessment, for establishing forest-based processing enterprises;

c. Conducting research on the properties of currently underutilized species for their promotion
and commercialization;

d. Supporting market surveys of forest products for trade promotion and intelligence;

e. Facilitating the provision of adequate technological information as a measure to promote

better utilization of forest resources.
(c) International and regional cooperation and coordination

11.24. Cooperation and assistance of international organizations and the international community in
technology transfer, specialization and promotion of fair terms of trade, without resorting to unilateral
restrictions and/or bans on forest products contrary to GATT and other multilateral trade agreements,
the application of appropriate market mechanisms and incentives will help in addressing global
environmental concerns. Strengthening the coordination and performance of existing international
organizations, in particular FAO, UNIDO, UNESCO, UNEP, ITC/UNCTAD/GATT, ITTO and ILO,
for providing technical assistance and guidance in this programme area is another specific activity.

Means of implementation

(a) Financial and cost evaluation

11.25. The secretariat of the Conference has estimated the average total annual cost (1993-2000) of
implementing the activities of this programme to be about $18 billion, including about $880 million
from the international community on grant or concessional terms. These are indicative and order-of-
magnitude estimates only and have not been reviewed by Governments. Actual costs and financial
terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and
programmes Governments decide upon for implementation.

(b) Scientific and technological means

11.26. The programme activities presuppose major research efforts and studies, as well as improvement
of technology. This should be coordinated by national Governments, in collaboration with and
supported by relevant international organizations and institutions. Some of the specific components
include:
a. Research on properties of wood and non-wood products and their uses, to promote improved
utilization;

b. Development and application of environmentally sound and less-polluting technology for

forest utilization;

c. Models and techniques of outlook analysis and development planning;

d. Scientific investigations on the development and utilization of non-timber forest products;

e. Appropriate methodologies to comprehensively assess the value of forests.

(c) Human resource development

11.27. The success and effectiveness of the programme area depends on the availability of skilled
personnel. Specialized training is an important factor in this regard. New emphasis should be given to
the incorporation of women. Human resource development for programme implementation, in
quantitative and qualitative terms, should include:
a. Developing required specialized skills to implement the programme, including establishing
special training facilities at all levels;

b. Introducing/strengthening refresher training courses, including fellowships and study tours, to

update skills and technological know-how and improve productivity;

c. Strengthening capability for research, planning, economic analysis, periodical evaluations and
evaluation, relevant to improved utilization of forest resources;

d. Promoting efficiency and capability of private and cooperative sectors through provision of
facilities and incentives.