ACCOMPLISHING THE VISION

Policy and Institutional changes

Uganda is moving in the right direction as far as laying the foundation for the creation of a favourable forestry sector is concerned. The policy and institutional problems have been noted and pointed out to government by a forestry sector review mission. Plans are under way to address some of them and as a result the forestry sector in Uganda has undergone significant changes in its strategic direction in the recent past.

Accomplishing More Investment In The forestry Sector

In order to encourage more participation in forestry management by the private sector:

There is a need to move away from over emphasizing the conservation and environmental functions of forestry at the expense of the productive functions. Under decentralization, forestry appears to have either been misconstrued as a service or else the capacity of the local authorities to handle the burden was overestimated. The fact that no revenue can be got from half of the permanent forest estate since this was created for the sole purpose of environmental conservation was certainly over looked (MFPED, 1999);

There is need for technology and information transfer to the private sector regarding the profitability of investing in forestry and on the availability of funding mechanisms;

There is a need to adopt a forest accounting system with a strong economic component. In the draft for the modernization of agriculture in Uganda, forestry is referred to as a low value crop. This is due to the fact that we do not have adequate data on the forest resource state, demand and supply situation and total monetary value of goods and services accruing. It is therefore very difficult to establish the real value of forestry to Uganda. This has led to gross underestimation of the contributions of forests to the economic development and well being of the country. In turn this has undermined the appreciation of the sector, which is now accorded a disproportionately low priority, especially in terms of fiscal allocations. The overall effect is that the value of trees as a renewable natural resource to be grown harvested and utilized for socio-economic development of the country is being clouded and overwhelmed by uninformed sentimentalism in favour of environmental protection and biodiversity;

It is also essential that economic models for all major types of forest/plantations be developed and that a forest information system be put in place to provide reliable data for planning;

In order to encourage more private sector investment in sustainable forest management, loans for such should have lower interest rates and longer grace periods than the normal industrial credits. Uganda should also investigate the potential of innovative financing mechanisms and incentives to help the private sector and make an effort to access international financing mechanisms for the forest sector and environmental conservation.

Technology changes

The issue of wastage of the forest resource base in wood based industries due to inefficient machinery will have to be addressed. Pit sawing is an effective method of sustainable utilization provided it is controlled properly. There is scope to assist pit sawyers with simple log handling technology and appropriate mobile band saw mills. In order to control wastage of our forest resource base and improve the management of natural forests and plantations, there is need for more guidance and more strict enforcement to ensure:

High quality sustainable management of natural forests based on good workable management plans;

Minimizing unplanned extraction damage in natural forests;

Increased enrichment planting;

Leaving some plots within government timber plantations for research and seeds;

Reforestation with fast growing commercially viable tree species.

Farm forestry is gaining importance in Uganda. The following technical interventions to promote farm forestry have been proposed in the following areas:

Development of farm forestry extension packages for all farming systems in the country;

Intensification of research into agricultural biodiversity and suitable farm forestry technologies and tree species for various agro ecological zones;

Supporting the private sector to establish and manage tree nurseries for commercial purposes;

Integrating agro forestry into school curricula;

Building capacity of farmers and private sector in favour of farm forestry through training, retraining and information dissemination, developing training programs and field manuals for frontline extension agents and

Identifying surveying demarcating and assessing natural forests on public and private land for technical management.

Human Development

The public has freedom to plant and manage their own trees but they are not adequately mobilized and have not internalised the value of trees. Today they are concerned more with the use of forest products and their interest in the management of the resources is still in its infancy. Forests and trees are taken for granted.

The promotion of farm forestry as stipulated in the PMA will require human resource development and a friendly extension service. Current government policy on devolution and privatisation emphasizes a localized, participatory and flexible approach to planning and institutional development with an implied sharper focus. There is limited financial and technical capacity at the district council levels for most of the devolved functions. There is need for capacity building at the sub district and lower levels. Existing agricultural extension staff needs to be reoriented towards farm forestry. Foresters also need to be recruited and retrained in extension methodologies.

According to the poverty eradication Action Plan (PEAP), government is to allocate more resources towards universal primary education, primary health care and modernization of agriculture. The plan aims at empowering the population through increased incomes and access to basic services and by building capacity. It is envisaged that with successful implementation of PEAP and annual economic growth rate of above 7.0%, mass poverty could be eradicated from society in the next 20 years. It is also envisaged that if sustained, in the next 20 years absolute poverty could be reduced to less than 10% and relative poverty to below 30%, while at the same time minimizing rural –urban disparities (NEMA, 1999).

Good governance is prerequisite for sustainable development. The government has the operation and independence of the judiciary. Constitutional order has been restored. Decentralization has been effected and allows local participation in planning and implementation of development projects. Thee are also regular universal suffrage elections. In areas where there is still insurgency, however, economic activity remains disrupted and the displaced people have been causing environmental degradation and deforestation in refugee camps.

Changes in Policies of other Sectors

Several complimentary and enabling policies, laws and action plans have been formulated and these can be used to nurture forestry. The relevant acts and policies that impinge on the forestry sector include:

The constitution of the Republic of Uganda (1995): Gives the state the responsibility of putting in place policies and legislation that can promote sustainable management of forests;

The National Environment Statute (1995): Established NEMA that can issue guidelines concerning management of forest biodiversity in consultation with lead agencies;

The Local Government Act (1997): Decentralized political powers to lower levels of government and accordingly puts the responsibility of management of forests under local governments;

The Water Act 1999;

Uganda Wetlands Policy 1995: establishes principles by which wetlands can be used and their productivity maintained sustainably. Some forests in Uganda are associated with wetlands (Sango-Bay);

The Land Act (1998): The purpose of this is to provide for tenure, ownership and management of land;

The Uganda Wild life Statute 1996: An enabling law for the implementation of the wildlife policy. It recognizes the need to conserve biodiversity and the participation of local communities in its management;

The Agricultural Policy: Not yet formulated. It will have direct implications on clearance of forests for agriculture.

The above policies and legislative framework will encompass:

Full consideration of poverty eradication in connection with all plans and actions;

Creation and protection of bio-diversity resources;

Sustainable management of forest resources regardless of ownership through the application of basic criteria and rules;

Creation of additional forest resources through reforestation of degraded forest and other land identified as appropriate for the purpose;

Support to an efficient and productive forest industry sector through fostering of conditions conducive to its flourishing;

Decentralization to the lowest possible level consistent with wider criteria including national and international interest and making use of collaborative activities with local communities, groups and egos where appropriate. In 1997 forestry was decentralized but due to lack of plans, resources and personnel at district level, the forest resources were excessively exploited and the decision was reversed. As an interim measure, revenue sharing has been introduced with 40% of gross revenue directly credited to district budgets from where it is supposed to be allocated to lower levels;

Full involvement of private sector in productive activities;

Minimal involvement by government in any activity that could be carried out effectively by the private sector.

Areas for collaboration with other sectors

Significant government reforms are currently under way in almost all sectors to increase efficiency and economic growth. The government’s reform processes are however very slow and difficult to implement. Sometimes implementation requires training and logistics and may entail a long process, which may stagnate the process. For example the minister for Water, Lands and Environment recently complained that implementing the land act entails a long process and the districts lack the capacity and facilitation. The land act was enacted in 1998 but up to now (2000); it has not been implemented (The New Vision July 12^th 2000, page 6). The directorate of Water Development has issued a policy that promotes interaction between forests, climate and water resources. The National Wetlands Conservation and Management Program is working towards ensuring protection and wise use of wetlands.

The PEAP and the PMA aim at sustainable natural resource management and conservation of biodiversity through environmental education, raising public awareness on public issues and building capacity in the districts. PMA will promote farm forestry. It should be noted however, that Uganda does not have a written agricultural policy, save for piecemeal statements occasionally made to parliament. This could be one of the reasons why in the past forest management has centred on permanent forest estate and not farm forestry (FF). Currently there are a number of other written policies with a direct bearing on agriculture and population. They are all disjoined and are not explicit on FF. The few agricultural laws that exist do have provisions, which could relate to the forest policy to nurture a symbiotic relationships for the benefit of farm forestry. There is a proposal to create a single and uniform category of forest reserves in order to open up the system and make it adequately responsive to innovation in forest/tree management in general and farm forestry in particular.

Apparently there is an eclipse of the commanding importance of wood energy by electricity and petroleum in the Ministry of Energy. The fact that wood fuel provides over 90% of the energy consumed in the country has been ignored, to the detriment of development of the energy sector. Government policy on energy if any revolves around fossil fuels and hydroelectric power and yet these meet smaller proportion of the aggregate national energy demand. Policy decisions on these are taken oblivious of the radical and direct implications such are going to have on tree resources in the country.

The land tenure system in some parts of Uganda does not favour tree planting. Communally owned land tends to be deforested and there are no incentives for tree planting or retention for the individual. In most areas in Uganda, women carry the burden of crop cultivation though only 7% own land. Trees are long-term crops and women need security of land and tree tenure if they are to invest in them. The co-ownership of land by women and their husbands was supposed to address this issue in the Land Act. The issue has however been removed from the Land Act and pushed to the Domestic Relations Bill which has not yet been passed by Parliament. It is not debatable that natural resource use with an open access system for which no property rights are defined for individuals or communities risks degradation or depletion. This has been one of the factors that have led to deforestation on non-gazetted land.

Another issue of contention is that the Land Act 1998 could be a threat if people claim ownership of forest reserves they have occupied for more than 13 years. Private ownership of land could also lead to more fragmentation and hinder bigger blocks of land, which would otherwise have been developed for community forest plantations.

The Government

The central government comprises of a number of bodies including the executive, parliament, security and law and order. The central government role is to ensure the security of person and property, the provision of a stable macroeconomic environment, basic infrastructure and social services (health care, education, safe drinking water) to the population. The central government has set policies, rules, regulations and institutional reforms to create an enabling environment in which the forestry sector can contribute meaningfully towards poverty eradication. There has also been increased protection of the permanent forest estate. There is however a big gap between policy formulation and implementation as already mentioned. There is need to:

Build capacity for the private sector and civil society;

Explore new funding mechanisms to support implementation;

Facilitate technology transfer and information to the private sector;

Coordinate and guide all donor efforts as well as all other activities taking place in the forestry sector;

Consolidate all government departments with the forestry mandate under one ministry;

Put in place incentives for the private sector to invest in forestry;

Encourage activities that reduce pressure on the forest resource base such as rural industries, removing tariffs on non-wood fuels and intensification of agriculture.

The role of central government in the forestry sector should be geared more towards regulation and quality control while local government takes up policy implementation and management. The decentralization process has given greater authority to local governments at the district and sub county levels to plan and implement programs. The production committees will especially be instrumental in implementing farm forestry. Local governments will therefore be responsible for designing government agricultural sector plans, delivery of extension services, entomological services, vermin control, land survey and administration, forestry and wetlands management and licensing and produce buying (MAAIF, 2000).

The Private Sector

The private sector should take over all productive functions of the forestry sector. This will create employment opportunities. The private sector should also participate in policy formulation and implementation of publicly funded programs. It should be involved in sector plans, contracting and direct provision of services on a commercial basis. The private sector should also explore opportunities in research and delivery of extension services. Joint ventures with local communities especially in the exploitation of non-wood forest products should also be investigated.

Civil Society

The civil society includes NGOs and CBOs as well as other organized bodies and associations. The civil society is already a key player in the design and management of the programs financed by the Poverty Action Fund (PAF). The civil society should be involved in the planning processes, implementation, financing and delivery of services to local communities. Public sector resources should be used in building the capacity of the civil society, facilitating their participation in public sector activities and in contracting them in the delivery of public sector services. Many pit sawyers are organized within associations. Properly supported groups of local people could grow timber trees on leased land inside forest reserves. Government should avail technical and financial support systems for such activities. Community based associations could also take up collaborative forest management and use.

Donor Agencies

Donor agencies are development partners in the eradication of poverty in Uganda. They include multilateral and bilateral organizations and agencies that support government and community organizations in the forestry sector through grants and soft loans. The term is also used to describe international NGOs. These agencies have been significant in providing development resources and they also dominate the process of policy formulation articulating sector support areas and determining the manner in which the resources are put to use. This form of ‘conditionalities, and technical supports can be used in guiding the direction of development of the forest sector. Donors need to harmonize their activities and speak with one voice to government. They should also harmonize their activities with government programs and evolve consensus on mechanism and procedures for financial disbursements and accountability that would apply in funding agreed upon programs at the centre and at local government levels. With increased transparency and accountability in the implementation of publicly funded programs, donors will be more committed to increase funding to government programs through budget support.

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