Program of work 1960/61
Program trends
Mediterranean development project
Technical assistance
Committee on forestry and forest products
Every session of the full Conference of FAO, the supreme governing body of the Organization, creates its own particular atmosphere. At the Tenth Session, which was held in Rome from 31 October to 20 November 1959, the characteristic seemed to be tenacity although, unlike previous sessions, there were no overt wrangles over the level of the Organization's budget for the next financial period, 1960-61.
A feature of the session was the frequent spotlighting of the importance of forestry in the world economy, with strong interventions by many forestry protagonists and notably by Professor Eino Saari, leader of the delegation of Finland.
As usual, the Conference had a very full agenda and dissolved itself into various Commissions and Committees so as to cope with its work in the time available, It is possible here to quote only some of the conclusions and decisions appearing in the final report.
As regards FAO's work in the field of forestry and forest products, the Conference commended the Director-General on the scope and intrinsic value of the program fulfilled through 1958 and 1959 and of the projects he proposed to undertake during the ensuing biennium, which were generally approved. The hope was expressed that the Director-General would ensure that future allocations are commensurate with FAO's increasing responsibilities in these fields, taking into account the over-all needs of the Organization.
In regard to 1958 and 1959, the Conference singled out for special mention the completion of the study on wood resources and requirements for the Asia and Pacific region and of the third World Forest Inventory (1958); progress in the compilation of a multilingual forest terminology; the co-operation of the International Labour Organisation in the work of the Joint FAO/ECE Committee on Forest Working Techniques and Training of Forest Workers; the joint meetings on forestry/agriculture relationships held in Turkey in 1959 by subsidiary bodies of the European Forestry Commission and of the European Commission on Agriculture; and the technical aid rendered under the Expanded Technical Assistance Program (ETAP) to many developing countries.
Appreciation was expressed to the Government of the United Arab Republic for the buildings and facilities provided for the Near East Forest Rangers' School. Governments of the Latin-American Region were again urged to give support to the Latin-American Forest Research and Training Institute at Mérida, Venezuela. A draft agreement for the permanent operation of the Institute was approved, for subsequent submission to the governments concerned for ratification.
Inevitably, with the limited resources available the Director-General had to be selective in the projects to be undertaken under the Regular Program in the ensuing biennium. The selection had to be made against the background that forests everywhere have a vital protective function to fulfill, and that furthermore the world was likely to require an increase in output in the order of 500 million cubic meters of industrial wood over the next 15 to 20 years. Both these points presented marked difficulties in the less developed regions of the world, which justified the importance attached by the Director-General to extending and improving forest and watershed management and to encouraging forest industry development in these regions.
The Conference agreed with the policy of giving increasing emphasis to the servicing of ETAP activities in forestry and forest products.
The Conference was in agreement with the sectors selected by the Director-General for special emphasis in 1960/61, which included:
(a) land-use problems, including forestry problems connected with land settlement and colonization;(b) evaluation of the indirect benefits of forests (forest influences);
(c) forest operations and working techniques;
(d) research, with the International Union of Forest Research Organizations acting as scientific adviser to FAO;
(e) forestry education, in its widest sense, including promoting fellowships, foreign travel of technicians and organizing demonstration projects;
(f) surveys of timber resources and requirements;
(g) investigations on the yields from investments in forestry and on other key economic problems.
The emphasis given to the regional co-ordination of plans for forest and forest industries development received favorable comment. The Conference drew the attention of the Director-General to a recommendation made by some delegates that a working party be formed to study the economic and technical aspects of production and trade of railway sleepers (crossties) in the southern zone of Latin America.
Freedom-from-Hunger Campaign
The Conference noted especially the many ways in which forestry could contribute necessary elements in the Director-General's Freedom-from-Hunger Campaign. The improvement of forest range management, improved rural and urban housing, packaging for the mass distribution of foodstuffs, provision of fuelwood, and the contribution of farm woodlands to farm incomes, were cases in point. Water is a key element in food production and the sound management of forests or watersheds (catchment areas) is needed to ensure the sustained availability of water.
The proposal for a Freedom-from-Hunger Campaign, conceived by the Director-General and endorsed by the Economic and Social Council (ECOSOC) at its summer session in 1959, is fundamentally designed " to promote a climate of opinion throughout the world in which the problems of hunger and want would be faced realistically, their causes analyzed with detachment, and their remedies sought in a bold and courageous manner ". It was based essentially on an intensification of efforts in FAO's fields of work, and contemplated informational and educational activities, along with research work and national action programs.
General items
Many delegates stressed the value of organizing more study tours as a means of forestry training. Such tours should normally form an integral part of technical meetings but on occasion it might be more appropriate to organize them separately.
The Conference took note of the offer of Argentina to make available to interested member countries the facilities of the new national forestry school. It was hoped that these facilities could be expanded so as to provide specialized training in torrent control and soil conservation, as recommended by a recent ETAP mission, and that international aid would be forthcoming for this purpose. The Conference also noted with appreciation the offer of Austria to place the resources of its new high-altitude acclimatization research institute at Patscherkofel, Tyrol, at the disposal of interested countries, as a gesture of bilateral technical assistance.
The proposals of the Director-General to organize a Second World Eucalyptus Conference and a worldwide consultation on problems of the production, use and trade of plywood, were endorsed.
The Conference heard with great appreciation a report by the delegate of the United States of America on the progress being made in preparing for the Fifth World Forestry Congress. It also welcomed the arrangements being made in Canada for study tours and other activities, as reported by the delegate of that country. Member countries were urged, in the spirit of Resolution No. 21/57 of the Conference's Ninth Session, to give every support to this important forestry event, especially by facilitating broad participation by national and nongovernmental services, institutes and agencies, by representatives of industry, and by individuals.
The Conference urged Member Governments to concentrate increasingly on improving national statistical services concerned with forestry and forest products, and on securing accurate national forest inventories, aided by FAO to the extent possible with the funds available. It was emphasized that every problem related to the development of forestry and forest industries has an economic aspect. The Conference stressed that accurate statistics are fundamental to activities in all fields of forestry and to the formulation of forest policies. The Director-General was commended for the quality and usefulness of the statistical and economic information on forestry and forest products assembled and issued by the Organization. Foresters attending the Conference, after being advised of the conclusions of the Program Committee about future arrangements for statistical work within the Organization, wished to place on record their considered opinion that, except for tabulation and mechanical calculation for routine publications, such as the Yearbook of Forest Products Statistics, any separation of the planning, compilation and analysis of statistics from the other activities of the Forestry and Forest Products Division would result in a loss of quality and efficiency.
Regional Forestry Commissions
The Conference took note of the reports of the Tenth Session of the European Forestry Commission, the Second Session of the Near East Forestry Commission, the Sixth Session of the Joint Subcommission on Mediterranean Forestry Problems (Silva Mediterranea), and of the Sixth Session of the Latin-American Forestry Commission. It commended the proposals and recommendations expressed in these reports to the close attention of the Director-General and of Member Governments.
Support was reaffirmed for the Director-General's policy of strengthening further FAO's regional activities in forestry and forest products. The Regional Forestry Commissions and their subsidiary bodies should play an increasingly important role in providing member countries with opportunities to discuss together, at a regional level, problems of mutual concern, as, for instance, the matter of the impact on forest policies of current trends towards economic integration among regional groups. The commissions could also serve to ensure that due weight is given by governments to forestry in land-use planning and that the role of forestry is kept in proper perspective in relation to all other forms of land-use.
The Conference was apprized of the completion, with FAO's help, of an economic study for forest development in Argentina, and took note of a proposal that such studies might be initiated by national agencies with the help of outside experts in other interested countries of Latin America or even of other regions, taking advantage of the experience gained in compiling the reports made in connection with FAO's Mediterranean Development Project.
The Conference particularly appreciated that Member Governments were now agreed to complete the pattern of regional forestry commissions so as to cover all the regions served by the Organization. As a result it approved the establishment of Regional Forestry Commissions for Africa and for North America. The functions of the Forestry Commission will be to advise on the formulation of forest policy and to review and co-ordinate its implementation on the regional plane, to exchange information, and to advise on technical problems.
The Director-General was urged to convene a first session of the African Forestry Commission before the next session of FAO's Conference in 1961. Arrangements would be made in consultation with Member Governments concerned and with the Commission for Technical Co-operation in Africa South of the Sahara (CCTA).
For the North American Commission, a first session would be held at a time and place to be determined by the Governments of Canada, Mexico, and the United States of America.
The Conference decided to expand FAO's responsibilities by including wildlife management among its regular activities, as proposed initially by the European Forestry Commission. It recommended that the Organization should develop a practical program of work in this field, and asked the Director-General to consult with Member Governments, with the International Union for the Conservation of Nature and Natural Resources and with the International Hunting Council, with a view to presenting specific proposals to its Eleventh Session.
The Conference endorsed the Director-General's intention of seeking to expand considerably FAO's work aimed at strengthening in member countries the organizational and administrative structure for planning and servicing forest development and for conducting research, extension and education. It particularly agreed that increased attention should be given to research and training, including that at the post graduate level. The view was expressed that regional coordination of research and training was essential for the achievement of FAO's objectives, and that regional advisory groups for this purpose should be maintained or established by the Organization for all the less developed regions to the extent that funds permit.
Work on logging and extraction, forest resource surveys, and on the economic aspects of forest policies, should also be considered for expansion. The phased cycle of studies on regional wood resources and requirements should be brought to completion as planned.
The Conference further invited the Director-General to strengthen the collaboration between the Forestry and Forest Products Division and the Land and Water Development Division on studies related to the sound management and conservation of natural resources (water, forests and soils). Such sound management and conservation should constitute an integral part of country planning, land-use policies, and economic and social development programs.
The Conference also requested the Director-General to give consideration to expanding the activities of the Organization in the field of forest tree improvement, with special emphasis on the extension of quick-growing species of economic value in temperate, arid and tropical countries.
Pulp and paper development
Unanimous appreciation was expressed of the attention being given by the Director-General to pulp and paper matters, as evidenced by the activities of the Latin-American Advisory Group, direct assistance to Member Governments, and the Conference on Pulp and Paper Development in Asia and the Far East which, in collaboration with the United Nations Economic Commission for Asia and the Far East, is to be held in Tokyo in 1960. In the light of the report of the World Consultation on Pulp and Paper Demand, Supply and Trade, held in Rome in September 1959, the Conference considered that greater attention to pulp and paper problems should be given at the international level than they had hitherto received. It expressed the hope that the Director-General, in developing his future programs, would be able to make provision for expanding FAO activities in pulp and paper sufficiently to enable the Organization to give effect to the recommendations of the Consultation, and recommended that he should establish a group of experts to advise him on FAO's work in this field and that, in order to ensure effective guidance, the group should reflect broadly the interests of producer and consumer countries and be representative of the several regions.
Land-use policies
The Conference fully recognized the importance as well as the complexity of the problems involved in seeking to achieve better co-ordination between forestry and agricultural activities as regards land-use policies.
Unquestionably, many land-use problems cannot be adequately solved unless there is a common approach to them by agriculturists and foresters. Examples of such problems are those arising out of land-use planning, soil conservation practices, watershed management, land settlement, landscape planning, and the readjustment in the way of life of farmers in regions where afforestation or soil conservation measures have to be carried out in the overriding interests of society as a whole. Special mention was made of the importance of the problem of shifting cultivation in the tropical regions. It was noted that need for co-operation between foresters and agriculturists was being still more keenly felt since new forms of land use, involving simultaneous tree planting and agricultural cropping on the same land were assuming increasing importance.
The Conference felt that the progress made in promoting such co-operation had been somewhat slow throughout the world, with the exception of a very few countries. It was recognized that one of the main reasons for this had been the lack of adequate liaison in the training of foresters and agriculturists and that another contributing factor in many cases had been the lack of suitable arrangements in the national administration.
The Conference considered, however, that co-operation between foresters and agriculturists involved not merely a problem of administration or education but also a problem of team work on specific technical questions. In this respect, there were cases where more technical knowledge would be required to facilitate such co-operation, e.g., the determination of the rate of afforestation in the light of local circumstances of particular watersheds or of the problems peculiar to each watershed.
With these considerations in mind, the Conference approved of the initiative taken by the Director-General to promote closer co-ordination of agricultural and forestry activities in the field of land use, of which the Mediterranean Development Project was a good example. This project constituted a co-ordinated approach to land-use problems with a view to concrete achievements.
The Conference felt that the initiative taken at the international level would be of great help to the member countries in achieving such co-ordination at the national level. Of special importance in this respect was the joint study tour organized by FAO in Turkey for members of the committees and working parties of the European Forestry Commission (EFC) and the European Commission on Agriculture (ECA) interested in land and water use problems. The discussions between foresters and agriculturists on that occasion had paved the way for the agreement reached between EFC and ECA, whereby the officers of the EFC and the Executive Committee of the ECA would constitute a standing committee to follow land-use policies relating to joint agricultural and forestry activities and to make sure that from an economic and social point of view such policies were consistent with the achievement of the objectives of a general development policy.
The Conference realized the importance of extending this sort of procedure to, or of devising a new one for, other regions where problems common to forestry and agriculture are no less important than they are in Europe. The Conference emphasized, however, that the possibility of establishing such co-operation in other regions required further study and that the results of such studies should be submitted for the consideration of the governments concerned at the earliest opportunity.
Watershed management
The Conference reviewed the work of FAO in the field of watershed management and paid special attention to the analysis of the conclusions drawn from the FAO Seminar and Study Tour on Watershed Management held in the United States from 10 August to 5 October 1959. The Conference underlined the following points:
(a) The growing awareness of the feasibility of managing watersheds. The technical possibilities for improving the quantity and quality of water and for controlling floods through combined programs of land treatment and engineering structures were now widely appreciated.(b) The growing awareness of the physical unity of a watershed and of the area served by its waters. Water development should no longer be considered as an isolated technical operation; on the contrary, erosion control, reforestation, channel improvement, reservoir construction, and even groundwater development ought to be regarded as parts of an over-all water and watershed management activity.
(c) The relative lack of technical knowledge relating to watershed management. Clear and precise conclusions on certain issues were still lacking and there seemed to be a need for further technical research on watershed management.
(d) The unsatisfactory status of economic evaluations in respect of watershed development. There was still no well-defined methodology that could be used in guiding decisions as to the expenditure to be incurred in watershed development. It was agreed that any attempt to determine the cost-benefit relationship should take account of the social and economic conditions in each country.
(e) The need for enlisting the support and active participation of land users in the implementation of watershed management programs.
The Director-General opened the discussion on this point of the agenda by referring to the history of the Mediterranean Development Project and the co-operation he had received from the United Nations and its sister agencies. He then outlined the integrated approach and the broad philosophy of development which was followed.
The Conference commended the approach to forestry problems as an essential element of balanced land-use and with due regard to the general economic and social development of the countries concerned, but expressed the view that the formulation of principles for a policy of land and water use might have been given greater prominence. It was further suggested that study of FAO's Mediterranean Development Project might he included in the curricula of all universities and other educational institutions concerned with land use of the region and that a land and water use faculty be established in the region. Stress was also laid on the need for all the countries concerned to consolidate and continue the work undertaken, and it was recommended that the Organization should play an important role in the initiation and co-ordination of the activities foreseen by the project.
Both Mediterranean and non-Mediterranean countries voiced approval of the project, which was described as a good example of constructive cooperation between governments. Representatives of the United Nations Economic, Social and Cultural Organization (UNESCO) and the International Labour Organisation (ILO) stressed the interest of their agencies in the project and their readiness to co-operate in its follow-up. The Conference also heard from the Director of the Institute of Social Studies in the Hague of his intention to organize as a follow-up action academic conferences of social scientists to discuss some of the theoretical aspects of economic and social development in the Mediterranean area.
The breadth of the approach, the quality of the diagnosis of the situation and particularly the strong orientation of the project toward early and concrete action were favorably commented upon. The view was expressed that the country reports and the programs they advocated were likely to be of benefit also to other countries than those directly concerned.
There was urgent need in the region to reverse an age-old tradition of deforestation and soil erosion. Demographic pressure on land of limited productivity, especially in a semiarid climate, was likely to lead to a serious deterioration of the situation. To co-ordinate development of all sectors of the economy was a prerequisite for any rise in standards of living from their present low levels. Despite obvious differences in conditions between countries, there were many problems which were of concern to all, and this justified a regional approach. The analysis brought out several types of projects which might usefully be undertaken jointly by groups of countries.
Many delegates indicated that the objectives of the project were very much in line with the views of their own governments though, of course, each had to take due account of particular circumstances. Approval was given more specifically to the " propulsive sector " and regional spearhead approach, and to the importance of avoiding a dispersal of limited financial, administrative and technical resources.
Turkey announced its intention of setting up a development area in Antalya and Greece in the Aliakmon basin in Western Macedonia. Tunisia and Morocco were similarly considering the establishment of spearhead zones. In Yugoslavia, several projects had already been initiated and others were envisaged. Progress achieved in these spearhead zones could be expected to spread gradually to the rest of each country concerned; and the experience gained in each development zone would be valuable to the other countries.
Some delegates felt that greater attention might have been paid to the study of markets of particular commodities and to other more specific investigations. It was, however, the consensus of opinion that although a more thorough study could have been made if more time and money had been available, the need for urgent action forced the pace. Doubts were expressed about the usefulness of economic models and projections extending over 15 to 20 years but the majority felt that such quantitative estimates were useful for giving adequate perspective to development programs. Several delegates pointed out that the successful implementation of the programs depended on favorable foreign markets, and in this context, stressed the need for greater international cooperation in the marketing of exportable products.
It was generally recognized that the burden of economic development was great. The emphasis of the report on the need for extraordinary efforts by each of the countries concerned was accepted by all. It was considered necessary to secure an adequate administrative structure, well-trained manpower and heavy investment; otherwise, with the rapid growth of population, the countries would be exposed to the risk of severe setbacks in their standards of living. Such investment would have to include forestry, which should also be considered as a public works program designed to promote soil conservation especially in mountain areas and to absorb surplus rural populations.
Although most of the effort was to come from within the countries, external aid was nevertheless crucial. This could include the effective use of surpluses. To increase the effectiveness of foreign aid, it was considered necessary to have all bilateral and multilateral assistance carefully planned and co-ordinated. Several delegates expressed the readiness of their countries to extend technical or financial assistance for development programs in Mediterranean countries.
The Conference took the occasion of the Tenth Anniversary of the Expanded Technical Assistance Program to express once again strong support for the Program and to commend the Director-General for the work done under it. The Conference noted that as of September 1959, 1,773 FAO experts recruited from over 40 countries had served in the field; that some 1,600 fellowships had been awarded; that approximately 100 training centers had been organized; and that the number of countries and territories served by FAO had grown from 48 in 1953 to 68 in 1960.
In reaffirming its confidence in the value of the Expanded Technical Assistance Program, the Conference expressed some concern regarding the fact that the continuous and increasing support by participating countries had been more than offset by the rising costs of ETAP and the increase in the number of recipient countries. It therefore urged participating governments to increase their contributions wherever possible, so as to arrive at a situation whereby the gap between demands and resources would not continue to widen, as was the case for 1959 and 1960, but would rather decrease.
The Conference, recognizing that the Expanded Technical Assistance Program as a whole was based on decisions made by each recipient country individually, nevertheless expressed some concern over the modest decline in FAO's share. In this connection, recipient governments were urged to take full account of the primary role of food and agriculture in a developing national economy, in requesting assistance.
The Conference noted that the problem of recruitment and its procedures, including vacancy notices, would be studied at a forthcoming session of the FAO Council, Nevertheless it felt that it should call to the attention of governments, particularly those in countries which so far had provided many experts, the need to continue to facilitate the release of technical personnel for field assignments of the Organization.
The Conference reaffirmed its strong support for fellowships under the Expanded Technical Assistance Program, and emphasized the need for the training of middle-grade technicians. For this purpose the usefulness of regional training centers was commended. The decline in the number of fellowships requested was regretted, although it was appreciated that assistance for the training of personnel was also available through other programs. The Conference felt, however, that it was desirable for recipient governments to undertake a review of their over-all training needs and relate them to the facilities offered by all sources of external aid. This would promote coherent national training programs and their consequent improvement.
United Nations Special Fund
The Conference noted that the United Nations Special Fund, established in October 1958 by the United Nations General Assembly, would enlarge the scope of the programs of technical assistance of the United Nations and the Specialized Agencies and that, in accordance with the guiding principles and criteria for the operation of the Special Fund, its activities would be complementary to those of the Expanded Program of Technical Assistance.
The Special Fund began its activities in 1959, based on a total of contributions for that year of $ 26 million. The Conference was informed that of the first 13 projects which the Governing Council of the Special Fund had approved, five would be implemented by FAO, the Managing Director of the Fund having requested and the Director-General of FAO having agreed that the Organization would act as Executing Agency for them. It was further informed that among the 32 proposed projects which would receive consideration in December 1959, there were 12 for which the Organization would act as Executing Agency. Thus it appeared that FAO would be responsible for the execution of approximately one third of the total activities of the Special Fund during its first year of operation.
It was noted that FAO as Executing Agency would be held fully responsible for the efficiency and quality of implementation of Special Fund projects assigned to it. In this connection, the Conference was gratified to learn that the Director-General intended to subcontract certain projects or parts thereof to national institutes or private firms.
To review the Organization's program in regard to forestry and forest products, a special Technical Committee was set up, for which the Conference nominated as Chairman, J. Jungo, Inspector-General of Forests, Switzerland. A joint meeting was also arranged between this Committee and the Agriculture Committee to deal with subjects of mutual interest. For this joint meeting J. de Vaissière, Inspecteur générale des eaux et forêts, France, was elected as Rapporteur.
The meetings of the Committee on Forestry and Forest Products were attended by 53 delegates, including foresters from 32 countries* and non-foresters from another six countries. A representative was present of FAO's sister agency, the International Labour Organisation, and also the President of the International Union of Forest Research Organizations and the Secretary-General of the International Union for the Conservation of Nature and Natural Resources. As Vice-Chairmen, the Committee elected E. Debase Administrador General de Bosques, Argentina, and K. Hamad, Assistant Director, Forestry Department, Sudan. Elected as Rapporteur was D.R. de Wet, Secretary for Forestry, Department of Forestry, Union of South Africa.
* Afghanistan, Argentina, Austria, Burma, Cambodia, Canada, Cuba, Federation of Malaya, Finland, France, Germany, Ghana Greece, Honduras, Indonesia, Italy, Norway, Philippines, Poland, Portugal, Spain, Sudan, Sweden, Switzerland, Tunisia, Turkey, Union of South Africa, United Kingdom, United States of America,. Venezuela, Vietnam, Yugoslavia.
Sir Henry Beresford-Peirse, of the United Kingdom, has been appointed as Deputy Director of the Forestry and Forest Products Division of FAO.
Sir Henry, who has served as Deputy Director-General of the Forestry Commission of Great Britain since 1953, has been released by his Government for service in FAO for two years. Born in 1905, he was educated at Eton and at Magdalen College, Oxford. He served with the Forestry Commission in Scotland from 1929 until 1953, except for the period of the second world war, and was Director of Forestry for Scotland for the latter six years of that period. He was recalled from military service in 1940 to the Timber Supply Department of the Ministry of Supply, from which he returned to the Forestry Commission near the war's end.
Sir Henry was Chairman of the European Forestry Commission of FAO from 1955 to 1957, and Chairman of the Working Party on Afforestation and Reforestation from 1958 to 1960. He has been the United Kingdom forestry delegate to the FAO Conference for the last three sessions.
