FAO -COFO 12 - Report

The Committee was informed of the recommendation of the ad hoc intersessional working group of CSD to "establish an intergovernmental panel on forests under the aegis of CSD and to determine its terms of reference and modalities for its establishment". The Committee recommended that FAO respond positively to the recommendation and be prepared to participate in this process (para 8.).

The Committee recalled recent initiatives to develop guidelines, criteria and indicators at inter-governmental level, such as those of the International Tropical Timber Organization (ITTO), the Helsinki and Montreal Processes and those of the Amazon Cooperation Treaty and the Central American Council of Environment and Development and the Central America Forest Council. These inter-governmental initiatives had been complemented by action by national authorities in participating countries. While wishing the further development of these initiatives, some delegates expressed concern about premature attempts at harmonisation. The Committee requested FAO, in collaboration with other concerned international organizations, to promote the exchange of information, research results, data and experience between and among such initiatives, and to involve countries which had not to date been part of ongoing international initiatives (paras. 16 and 17).

(ii) Review of FAO's Regular and Field Programmes; Medium-term perspectives (1996-2001) and long-term priorities (1996-2010)

While recognizing the budgetary additions made, the Committee expressed continued concern at the limited resources provided to forestry. In view of the importance of this sector the Committee called for continued increases of resources within the 1996-97 biennium under FAO's Regular Budget to adequately support forestry activities (para. 26).

The Committee requested FAO to concentrate on those areas in which it felt that FAO had a comparative advantage. In order to direct its efforts to high priorities and remain within its budget, FAO would have to reduce activities in lower priority areas. These lower priority areas should include those which were better left to other institutions that have more specialised technical competence and where FAO has no normative role (para. 27).

Comparative advantages were seen to include the collection, analysis and dissemination of data and information, policy advice, and FAO's coordinative and advocacy role in the forest sector and technical assistance in its fields of concentration (para. 28).

A primary consideration in the determination of detailed priorities must be the provision of appropriate support to follow-up to UNCED and implementation of the Forest Principles. Specific areas of priority importance included: the Global Forest Resources Assessment, technical information needed by countries to implement UNCED commitments and to develop criteria and indicators for sustainable forest management, the community forestry programme, strategic planning and policy formulation, NFAPs as a vehicle for capacity building and planning, inter-sectoral land use planning, and enhancing the value of forest products through improved management practices (para. 29).

FAO must give special priority to its CSD "Task Manager" role for forestry and in support of the Intergovernmental Panel on Forests, if such a panel is created (para. 30).

The Committee endorsed the continued priority given by FAO to TFAP, to be expanded as the framework for National Forests Action Plans (NFAP). The NFAP process was also stressed as an instrument for strategic planning, policy formulation and capacity building. Policy advice, both within and outside the NFAP framework, was a priority activity where FAO has a comparative advantage and should be used in the support of sustainable forest management. Policy support to the countries in transition to a market economy was especially commended (para. 33).

The Committee recommended that priority be given to work in support of increasing the value of forest products through improved management practices. In related concerns, the Committee asked FAO to develop national accounting systems to include the full replacement as well as social, cultural and environmental costs of forestry activities in the pricing of forest products and services. It commended the work carried out on producing guidelines for sustainable forest harvesting (para. 35).

The Committee endorsed the enhanced decentralization of FAO activities as a means to provide greater regional support. Members also requested that FAO provide support to regional initiatives while maintaining a balance with the continued country support (para. 38).

(iii) Decisions of FAO Governing Bodies of interest to the Committee

Recommendations of other FAO Statutory Bodies in forestry of interest to the Committee

Follow-up to the requests and recommendations of the eleventh session of the Committee

The Committee recognized the important roles of the Regional Forestry Commissions and welcomed FAO's efforts to strengthen and expand their activities. In this respect, the Committee strongly recommended that FAO:

- stimulate intersessional activities of the Regional Commissions, including technical studies, as a way of enriching the work of the Commissions and of FAO;

- seek ways of increasing the participation of member countries in Commission meetings and activities, particularly those countries with severe financial constraints;

- facilitate more interaction among the Regional Commissions and more joint activities such as the recent joint meeting of the bureaux of the Commissions (para. 39).

The Committee noted the positive contribution of the High-level Panel of Experts on Forestry, convened by the Director-General in 1994, and urged FAO to regularly convene such a group (para. 43).

The Committee endorsed the continuation of FAO's activities related to the integration of forestry and food and nutrition issues. The Committee specifically encouraged the development of methodologies to analyze the socio-economic and biological aspects of community-based management of forest resources (para. 44).

The Committee noted the results of the recent international expert consultation on non-wood forest products and urged FAO to follow up on the recommendations in this area and to develop as a "centre of excellence" for non-wood forest products development. The Committee further noted the need for FAO to support the sound development of ecotourism for commercial and educational purposes (para. 45).

The Committee noted the need for continued attention and support for public relations and awareness campaigns in forestry and urged FAO support in this area, especially within the regional context (para. 46).

INTRODUCTION (back to top)

1. The twelfth session of the Committee on Forestry (COFO) was held at FAO Headquarters, Rome, Italy, from 13 to 16 March 1995.

2. The session was attended by delegates from 114 Members of the Committee, by observers from 11 other Member Nations, one UN Member State and the Holy See; by representatives from the United Nations, the United Nations Development Programme (UNDP), the United Nations Environment Programme (UNEP), the United Nations Economic Commission for Europe (ECE), the United Nations Educational, Scientific and Cultural Organization (Unesco) and the World Bank; and by observers from 20 intergovernmental and international non-governmental organizations. It was open to the general public. The full list of participants is given in Appendix B.

3. The outgoing Chairman, Mr Hassan Osman Abdel Nour (Sudan), opened the session.

4. Mr H.W. Hjort, Deputy Director-General, welcomed delegates and addressed the session on behalf of the Director-General.

ADOPTION OF AGENDA (Item 2) (back to top)

5. The Agenda (Appendix A) was adopted following clarification that the Ministerial meeting was not part of the Agenda of COFO and its preparation was carried out in accordance with a specific process. The documents considered by the Committee are listed in Appendix C.

ELECTION OF OFFICERS AND DESIGNATION OF RAPPORTEUR (Item 3) (back to top)

6. The Committee elected Mr John Valentine (New Zealand) to the Chair, Mr Abeedullah Jan (Pakistan) as First Vice-Chairman and as Vice-Chairmen:

Ján Ilavsk_ (Slovak Republic) - Europe

Rabie Fallah (Iran, Islamic Republic of) - Near East

Pedro Medrano Rojas (Chile) - Latin America and Caribbean

Moorosi Raditapole (Lesotho) - Africa

Yvan Hardy (Canada) - North America

Mr W. F. Sheridan (U.K.) was elected Rapporteur.

MAJOR FORESTRY POLICY ISSUES (back to top)

The management and sustainable development of forests - the 1995 CSD review (Item 4)

(Documents COFO-95/2, Supplements 1 to 6)

7. The Committee noted the significance of the timing of this COFO meeting and the following Ministerial meeting, between the CSD ad hoc Intersessional Working Group on Sectoral Issues and the CSD third session and appreciated the efforts of FAO to convene these meetings at this time.

8. The Committee was informed of the recommendation of the ad hoc intersessional working group of CSD to "establish an intergovernmental panel on forests under the aegis of CSD and to determine its terms of reference and modalities for its establishment". The Committee recommended that FAO respond positively to the recommendation and be prepared to participate in this process.

9. FAO should continue to work closely and build partnerships with other international organisations and agencies, including UNEP, UNDP, ITTO, the World Bank, and the secretariats of the conventions on biological diversity, climate change and desertification, as well as a number of regional organisations. The Committee was informed of the results of the expert consultations on non-wood forest products and on the harmonization of criteria and indicators and the meetings held to seek the views of the private forest industry sector and of NGOs on the issues, before COFO. The Committee urged FAO to continue to work in an open and transparent manner with these and other interested groups.

10. While discussing the idea of a legally-binding instrument on forests, some delegations stated their support, others thought this premature or undesirable. The Committee agreed that, considering these differences of view, the way forward should be based on consensus-building in a step by step process.

11. The Committee noted that the pivotal role of forests in sustainable development was recognized in the Non-Legally binding authoritative statement of principles for a global consensus on the management, conservation and sustainable development of all types of forests (the Forest Principles) and Agenda 21 Chapter 11, Combating deforestation. Forests affected the social, economic, cultural and environmental make-up of countries, but were affected by a range of external factors. The Committee felt that greater recognition was needed of these external effects and it was necessary to plan forestry interlinking with other sectors in a holistic manner.

12. Many delegations advised the Committee of national, regional and international initiatives and progress in implementing the UNCED agreements. They reported a major increase in interest and activity, involving wider participation and collaboration than previously. Where difficulties had been encountered in the manifold problems connected with implementation, this was mainly due to external factors often connected with social, economic or political instability. Developing countries and countries in transition had experienced particular difficulties.

13. The Committee stressed the importance of full participation and involvement of indigenous and other local communities, private sector and NGOs in the planning, design and implementation of policies and programmes relating to sustainable forest management, and noted that such participation did not always occur. The Committee highlighted the need to consider gender issues in this regard.

14. The Committee emphasised the need for raising awareness at all levels of the multiple functions of forests through the dissemination of information and agreed that there was need to properly value the multiple benefits derived from forests in the form of goods and services for human welfare, improved food security, environmental conservation, watershed management, protection of biological diversity and climatic influences and subsequently to include them in the system of national accounting. National governments and international organizations could do more to assist this process.

15. The Committee noted the need to define basic principles of sustainable forest management clearly, to facilitate enhanced understanding both within and outside the forestry sector. The development of guidelines and of criteria and indicators would help provide a common understanding and a conceptual framework for describing and assessing national progress in achieving sustainable forest management. A holistic approach should include cultural, environmental, social, economic and institutional aspects.

16. The Committee recalled recent initiatives to develop guidelines, criteria and indicators at inter-governmental level, such as those of the International Tropical Timber Organization (ITTO), the Helsinki and Montreal Processes and those of the Amazon Cooperation Treaty and the Central American Council of Environment and Development and the Central America Forest Council. These inter-governmental initiatives had been complemented by action by national authorities in participating countries.

17. While wishing the further development of these initiatives, some delegates expressed concern about premature attempts at harmonisation. The Committee requested FAO, in collaboration with other concerned international organizations, to promote the exchange of information, research results, data and experience between and among such initiatives, and to involve countries which had not to date been part of ongoing international initiatives.

18. The Committee recognized that the development of policies and actions related to the formulation of criteria and indicators at national and forest management unit level was the responsibility of sovereign nations but that international action could provide guidance and catalyze action in this regard. It suggested that such work, as well as testing and demonstration, should be carried out by national governments with the close involvement of all concerned, including indigenous and other local communities living in and around the forests. The Committee requested FAO, in collaboration with other concerned international organisations, to assist countries in this respect, as relevant.

19. The meeting recognized the need for complementarity between indicators at national and, where relevant, forest management unit levels. It further recognized that the work on identifying indicators could contribute to clarifying issues related to environment and trade, including incentive systems and forest product certification.

20. The Committee emphasized the importance of trying to ensure that the forest resource has maximum value for development of countries, and stressed the need to work actively towards non-discriminatory trade in all forest products from all types of forests.

21. The Committee agreed that trade and environment issues were interrelated, and that it was essential to ensure that policies and programmes in these areas be mutually supportive. The importance of addressing and resolving conflicting issues was stressed, as was the need to ensure that environmental policies were not used as disguised trade barriers.

22. The Committee recognised that forest products certification may be a potentially useful means of encouraging trade in products from sustainably managed forests. Some delegations stressed that, to be effective, certification programmes must be practical, transparent, non-discriminatory, and applied to products from all types of forests. These programmes, based on internationally agreed criteria, should be developed through cooperation of all affected parties and be voluntary in application. Some delegations considered it important to ensure that certification was not used as a non-tariff barrier to trade.

FAO'S PROGRAMMES IN FORESTRY (back to top)

Review of FAO's Regular and Field Programmes; Medium-term perspectives (1996-2001) and long-term priorities (1996-2010) (Item 5) (Documents COFO-95/3 and 95/4)

23. The Committee noted the change in presentation of the two documents under this agenda item. In discussing the Programme Implementation and Evaluation Reports (COFO-95/3), which concentrated on selected issues, some delegates expressed dissatisfaction at the selection and presentation. The Committee was informed that comprehensive data would be included in the 1994-95 Programme Implementation Report, which would be submitted through the Programme and Finance Committees and the Council to the Conference in October 1995.

24. With regard to the document on priorities (COFO 95/4), the Committee regretted the lack of budgetary data but was informed that this was due to an exceptional situation arising from the timing for the preparation for the 1996-97 Programme of Work and Budget. It was assured that future documents would contain budgetary data to enable the Committee to appreciate the relative priorities among the various forestry activities.

25. The Committee recognized that the replies to the questionnaire sent to Member Nations regarding programme priorities were a useful contribution to programme formulation, but they were not a substitute for the expression of country views at established FAO fora. The Committee was informed that this survey was used in particular to assist in determining regional requirements for expertise in connection with the restructuring exercise.

26. While recognizing the budgetary additions made, the Committee expressed continued concern at the limited resources provided to forestry. In view of the importance of this sector the Committee called for continued increases of resources within the 1996-97 biennium under FAO's Regular Budget to adequately support forestry activities.

27. The Committee requested FAO to concentrate on those areas in which it felt that FAO had a comparative advantage. In order to direct its efforts to high priorities and remain within its budget, FAO would have to reduce activities in lower priority areas. These lower priority areas should include those which were better left to other institutions that have more specialised technical competence and where FAO has no normative role.

28. Comparative advantages were seen to include the collection, analysis and dissemination of data and information, policy advice, and FAO's coordinative and advocacy role in the forest sector and technical assistance in its fields of concentration.

29. A primary consideration in the determination of detailed priorities must be the provision of appropriate support to follow-up to UNCED and implementation of the Forest Principles. Specific areas of priority importance included: the Global Forest Resources Assessment, technical information needed by countries to implement UNCED commitments and to develop criteria and indicators for sustainable forest management, the community forestry programme, strategic planning and policy formulation, National Forests Action Plans (NFAPs) as a vehicle for capacity building and planning, inter-sectoral land use planning, and enhancing the value of forest products through improved management practices.

30. FAO must give special priority to its CSD "Task Manager" role for forestry and in support of the Intergovernmental Panel on Forests, if such a panel is created.

31. The Committee commended the work of the Community Forestry and Forest Trees and People Programmes as an efficient decentralized programme.

32. It commended and endorsed the work of the Global Forest Resources Assessment (GFRA) and recommended that the GFRA incorporate more qualitative information on environmental and human resource aspects into the work on assessments. Resource assessment work should also be expanded to non-wood forest products and biological resources.

33. The Committee endorsed the continued priority given by FAO to TFAP, to be expanded as the framework for NFAPs. The NFAP process was also stressed as an instrument for strategic planning, policy formulation and capacity building. Policy advice, both within and outside the NFAP framework, was a priority activity where FAO has a comparative advantage and should be used in the support of sustainable forest management. Policy support to the countries in transition to a market economy was especially commended.

34. The Committee stressed the importance of coordinating forestry activities with other sectors for integrated land use planning and management as an essential aspect for the protection of forest resources and biological diversity because many threats to the forestry sector originated from outside the sector.

35. The Committee recommended that priority be given to work in support of increasing the value of forest products through improved management practices. In related concerns, the Committee asked FAO to develop national accounting systems to include the full replacement as well as social, cultural and environmental costs of forestry activities in the pricing of forest products and services. It commended the work carried out on producing guidelines for sustainable forest harvesting.

36. Within the above priorities support was also given to FAO's work on biological diversity in forests, afforestation and reforestation, watershed management and sustainable mountain development (as "Task Manager" for Agenda 21, Chapter 13), and urban and peri-urban forestry.

37. With regard to the ongoing restructuring of FAO, the Committee noted the transfer of the Forestry Operations Service to the Technical Cooperation Department, which was intended as an effective means to strengthen both the normative and operational activities. Some members saw the need for a better balance between Regular Programme and field activities as it was felt that FAO had only limited comparative advantage in project implementation and that projects selected should more closely complement the regular programme. Some members noted the need for more flexible project design, effective monitoring and frequent review of implementation.

38. The Committee endorsed the enhanced decentralization of FAO activities as a means to provide greater regional support. Members also requested that FAO provide support to regional initiatives while maintaining a balance with the continued country support.

MATTERS REFERRED TO THE ATTENTION OF THE COMMITTEE (Item 6) (back to top)

Decisions of FAO Governing Bodies of interest to the Committee (Document COFO-95/5)

Recommendations of other FAO Statutory Bodies in forestry of interest to the Committee (Document COFO-95/6)

Follow-up to the requests and recommendations of the eleventh session of the Committee (Document COFO-95/7)

39. The Committee recognized the important roles of the Regional Forestry Commissions and welcomed FAO's efforts to strengthen and expand their activities. In this respect, the Committee strongly recommended that FAO:

- stimulate intersessional activities of the Regional Commissions, including technical studies, as a way of enriching the work of the Commissions and of FAO;

- seek ways of increasing the participation of member countries in Commission meetings and activities, particularly those countries with severe financial constraints;

- facilitate more interaction among the Regional Commissions and more joint activities such as the recent joint meeting of the bureaux of the Commissions.

40. The Committee supported the concept of networks among members to pursue specialized topics such as forestry research, species management, products development, etc. The work of Silva Mediterranea was cited as an example of how such networks can effectively operate, and FAO was urged to increase support for such technical networks.

41. The Committee supported the work of the Advisory Committee on Pulp and Paper which ensured collaboration with industry and the private sector and welcomed the potential expansion of work of this committee into other forest product areas. The Committee encouraged fuller participation of developing countries in the activities of this Advisory Committee.

42. The Committee was informed of the proposal for the broadening of the mandate of the FAO Commission on Plant Genetic Resources to include other categories of organisms used for food and agriculture. It stressed the importance of continuing the activities of the Panel of Experts on Forest Gene Resources, given the specificity of approaches and strategies in this field.

43. The Committee noted the positive contribution of the High-level Panel of Experts on Forestry, convened by the Director-General in 1994, and urged FAO to regularly convene such a group.

44. The Committee endorsed the continuation of FAO's activities related to the integration of forestry and food and nutrition issues. The Committee specifically encouraged the development of methodologies to analyze the socio-economic and biological aspects of community-based management of forest resources.

45. The Committee noted the results of the recent international expert consultation on non-wood forest products and urged FAO to follow up on the recommendations in this area and to develop as a "centre of excellence" for non-wood forest products development. The Committee further noted the need for FAO to support the sound development of ecotourism for commercial and educational purposes.

46. The Committee noted the need for continued attention and support for public relations and awareness campaigns in forestry and urged FAO support in this area, especially within the regional context.

OTHER MATTERS (back to top)

Date and place of next session (Item 7)

47. The thirteenth session of the Committee will be held in Rome from 10 to 14 March 1997.

APPENDIX A - AGENDA

1. Opening of the session

2. Adoption of agenda

3. Election of Officers and Designation of Drafting Committee

MAJOR FORESTRY POLICY ISSUES

4. The management and sustainable development of forests - the 1995 CSD review

FAO'S PROGRAMMES IN FORESTRY

5. Review of FAO's Regular and Field Programmes; Medium-term perspectives (1996-2001) and long-term priorities (1996-2010)

MATTERS REFERRED TO THE ATTENTION OF THE COMMITTEE

6. - Decisions of FAO Governing Bodies of interest to the Committee

- Recommendations of other FAO Statutory Bodies in forestry of interest to the Committee

- Follow-up to the requests and recommendations of the eleventh session of the Committee

OTHER MATTERS

7. Date and place of next session

TABLE OF CONTENTS

MATTERS REQUIRING ATTENTION BY THE COUNCIL (back to top)

INTRODUCTION (back to top)