National Forest Policy of Suriname · 1 National Forest Policy of Suriname National Forest Policy...

PUBLICATION The Ministry of Natural Resources in cooperation with The Foundation for Forest Management and Production Control (SBB) ©,Paramaribo, January 2006

PHOTOGRAPHYArchive: The Foundation for Forest Management and Production Control (SBB) © K. M. Tjon

BASIC COVERDESIGNCosmos

DESIGN AND LAYOUTART DIRECTION H&M Graphics

PRINTED BYLeo Victor N.V.

National Forest Policyof

Suriname

SBB engelse versie06.qxd 1/27/2006 2:30 PM

In the framework ofthe forest policy formulationprocess, intensivediscussions tookplace in variouscontexts.


PREFACE 1

1. INTRODUCTION 3

2. DESCRIPTION OF THE FOREST SECTOR 4

2.1 Forest area and spatial use 42.2 Forest ownership and land rights 52.3 Economic, social and environmental significance 6

2.3.1 Timber production 62.3.2 Non-timber forest products 72.3.3 Employment 72.3.4 Social functions 72.3.5 Ecological functions 7

2.4 Capacity and institutions within the forest sector 82.4.1 Personnel capacity 82.4.2 Institutions 8

3. EVALUATION OF THE FOREST SECTOR 10

4. MAIN POLICY OBJECTIVE 11

4.1 Realization 11

5. THEMATIC OBJECTIVES AND STRATEGIES 12

5.1 Land use planning and land tenure 145.1.1 Use (planning) 145.1.2 Tenure 14

5.2 Contribution to the economy and social development 165.2.1 Timber production 165.2.2 Non-timber forest products 195.2.3 Ecological functions 20

5.3 Environmental protection and protected areas 215.4 Capacity building: information, education, training and research 22 5.5 Institutional framework 24

6. SUPPORTING MEASURES 27

6.1 Land rights 276.2 Laws and regulations 276.3 Policy coordination 276.4 Information 276.5 Partnership 286.6 Strategic plan and monitoring 286.7 Financing 28

ABBREVIATIONS AND DEFINITIONS 29

CONTENTS NATIONAL FOREST POLICY OF SURINAME


1 National Forest Policy of Suriname National Forest Policy of Suriname 2

A long period of preparation preceded the formulation of a national forestpolicy for Suriname. In the late nineties, with the support of the FAO, a pro-posal was developed concerning a process of policy formulation accord-

ing to international standards. In 2003, the Ministry of Natural Resources initiat-ed this process of policy formulation. After approximately eight months, thisprocess was finalized together with the contribution of expertise from all sectionsof society and with international support. In the forest policy document in ques-tion resulting thereof, the opinions and wishes of the several stakeholders in theforest sector, have been attuned and compiled as well as possible. This was donein order to present a nationally supported forest policy, of which the formulatedprinciples and objectives form a proper foundation for the future development ofthe forest sector.

The Foundation for Forest Management and Production Control (SBB), function-ing as the executive organ of the Ministry of Natural Resources, has fulfilled aspecial role during the start and further realization of the formulation process.Furthermore, the Ministry was fortunate to receive an active and constructivecontribution from all stakeholders in the forest sector, from the beginning up tothe point of realization. I therefore express my appreciation and thanks to theentire community of Suriname. During the formulation of the national forest pol-icy we have encountered a great deal of cooperation and support. Therefore, Iwould like to extend my thanks towards the international partners, in particularthe Food and Agricultural Organization of the United Nations (FAO) for the techni-cal support, and the Inter-American Development Bank (IDB) which has providedus with the financial means that we needed.

The government's aim was to include all social partners and civil society in theprocess of social and economic development and sustained fight against pover-ty. In this process of the forest policy formulation the partners in the forest sec-tor, lead by the Ministry's technical team, have intensively worked together atdefining a common national vision and in doing so have successfully expressedthe government's aim.

The possibilities of our forest are plentiful and with great variety. It was, however,necessary for us to reflect deeply in what manner we are to deal with those pos-sibilities in order to gain optimal economic benefit from our resources.

The main conclusion drawn from the deliberations is that our forest can con-tribute to the development objectives of Suriname. Through utilization of the nat-ural resources of our country, we will be able to increase the prosperity and well-being of the Surinamese community. There are substantial possibilities to pro-mote the economic growth and to stimulate investments that will provide profitsin the short term.

Increased national forest production must include diversification of the exploita-tion of natural resources and broad mobilization of human potential. Thus, nowmore than ever, a part of our population residing in and around the forest areas,wants to get the opportunity to share in the development and prosperity. It ismore than obvious that the forest sector is determined to contribute in fillingthese needs.

PREFACE

Another factor is that the forest of Suriname situated on the Guiana Shield andbelonging to the Amazon rain forest, is of global importance with its invaluableprofusion of biodiversity. Furthermore, our extensive forest area is of great valueto stabilize the global environment. By signing for instance, the Rio Declaration in1992, Suriname has committed itself to preserving these values and to utilizingthem in a sustainable manner. We realize that by making sensible choices, wecan turn these profusions into national economic gain.

With this policy document available, we now have a common and clear vision andwe therefore can see where our forest sector stands within the social-economicevents in Suriname and the effort that we must make together, in order to real-ize the agreed policy objectives.

The Ministry of Natural Resources is ready to play a proactive part to ensureimplementation of this forest policy and thereby welcomes any initiative fittingthis policy, and all contributions from the national and international partners andthe other actors in the sector.

A s indicated above by the former Minister of Natural Resources - the pre-ceding Minister responsible for the policy and management with regard toforestry and nature conservation within the Government of Suriname -

this National Forest Policy of Suriname provides the basis for the long desiredsustainable utilization and conservation of the pertaining natural resources forthe benefit of all relevant sectors of the Surinamese community as well as for theglobal community.It is very important that this document will be made accessible to all stakehold-ers, so that it will become an active guideline in the daily management of forests,protected areas and wildlife. This is also a prerequisite for its elaboration into aconcrete strategy for the sustainable conservation and utilization of the pertain-ing resources, as is scheduled to start soon, in a similar participatory process ofall stakeholders as the one in which this document was formulated.This English translation will contribute to our endeavors to make this documenta viable instrument for our national development.

Michael Jong Tjien Fa, BAMinister of Physical PlanningLand - and Forestry Management

The Minister of Natural ResourcesF.R. Demon, LL.M.

In the course of time, forest policy in ourcountry has evolved fragmentarily. Theneed for a more coherent forest policy

tuned to modern ideas about forest man-agement became increasingly stronger.National and international partners havesupported the execution of backgroundand sector studies in the past few years,and also produced documents relevant topolicy. In this connection, the contributionof the Food and Agriculture Organization(FAO) in particular should be acknowl-edged. The material produced offered agood basis for the formulation of a coher-ent forest policy with contribution of allstakeholders, and in which the roles of thevarious actors came out well. The Ministerof Natural Resources has set up a projectand formulation team of independentexperts to prepare this present documentabout forest policy. The formulationprocess was finished in the first half of2003.

This document has come about with thecontribution and participation of manystakeholders throughout the country. TheFoundation for Forest Management andControl (SBB) has been instrumental instarting up and realizing this process offormulating a national forest policy.

The project team has directly consultedmore than 500 stakeholders throughoutthe country. The consultation took place intwo series of three stakeholder consulta-tion meetings in Nieuw Nickerie, Moengo

and Lelydorp respectively. The first seriesgave the formulation team good insightinto such views, bottlenecks, problemsand possible resolutions as the variousstakeholders have. During the secondround the first draft of the forest policy wasdiscussed and commented on. The goodpreparation and valuable suggestions of anumber of participants has been remark-able. In particular, the contribution of therepresentatives of the people living in theinterior and the industry, represented inthe Platform Houtsector Suriname, whichin an earlier stage presented a documentwith proposals concerning forest policy,has been outstanding. In addition to thestakeholder consultation meetings, theteam has also spoken with individuals andgroups, and has incorporated the remarksthat were submitted in writing. Finally, theteam also paid various visits to the tradi-tional authorities in the interior and toorganizations and companies.

All in all the stakeholders represented across section of interest groups of variousbackgrounds such as members of parlia-ment, businessmen and entrepreneurs,representatives of the traditional authori-ties and communities living in the interior,the administrative service and other gov-ernment agencies such as police and mili-tary, women and youth clubs, environmen-tal organizations and scientists.

Finally the formulation team received sup-port in the form of advice and guidancefrom an interdepartmental policy advicegroup and a steering committee consistingof prominent experts of various disciplines.

Because of these intensive and generalconsultations, the hope that the policy hasa broad social basis seems justifiable.

3 National Forest Policy of Suriname

Project team together withGranman (Chief) Songo

Aboikoni. The highest authoritiesof the interior communities were

involved in the policy formula-tion process.

This documenthas come

about withthe contribu-

tion and participation

of manystakeholders

throughoutthe country

1. INTRODUCTION


§ 2.1 Forest area and spatial use

More than 90% of the land area ofour country, 14.8 million ha. in total,is covered with forest. Especially in

the coastal plain, there is a great variety offorest types, such as extensive swamp-and mangrove forests. The greater part ofour forest, however, consists of predomi-nantly mesophytic high dry land forest.

The spatial use of the natural forest is clas-sified in the Forest Management Act as fol-lows:

– Protection forest, primarily intended forthe protection of soil and downstreamland and the maintenance of the waterregulation,

– Protected areas (forest nature reserves,nature parks) and specially protectedforest, primarily intended for the conser-vation of biodiversity,

– Production forest, primarily intended forthe production of timber and non-tim-ber forest products, but actually multi-functional forest, according to modernconcepts of sustainable forest manage-ment,

– Conversion forest, intended for otherland use.

In the coastal plain, some types of swampand savanna forest are exploited for woodproduction. During the last 50 years, themost important wood production area hasbeen the "forest belt", a 40 - 100 km widestrip crossing the country from East toWest and made accessible by the secondEast-West connection. This area of 2.5 mil-lion ha. was designated as production for-est because of the timber stocks presentand the favorable condition of the ground.In the past decade this strip has beenexpanded. For the coming years the pro-duction area could amount to some 4 mil-lion ha. Within this area there are less pro-ductive forest types, so that the potentialnet production area will be approximately2.5 million ha. This area offers the possi-bility to harvest 1-1.5 million m3 annually.Starting from a cutting cycle of 25 years,10 to 15 m3 per ha. will be harvested if asteady expansion of the package of cur-rently lesser-known species is realized.

The greater part of the forest lies furtherinland. Due to the topography and the lackof infrastructure, it is not likely that thesevast areas will be used for commercialwood production in the near future. Alsofrom the policy point of view it is not obvi-ous that timber exploitation will be stimu-

National Forest Policy of Suriname 4

2. DESCRIPTION OF THE FOREST SECTOR

This areaoffers thepossibility toharvest 1-1.5million m3

annually

Partialoverview

of log conces-sions: 4 million ha

have been designated as

production forest forthe coming years.


lated there. After all, forests are of greatsignificance for the environment, the biodi-versity, and the economy because of thefact that they fulfill important and valuablefunctions as protection forests. Regulationof the water balance, the supply of freshwater and the control of erosion do notonly benefit the people living in the interi-or, but are also of vital importance to thesocial functioning of the coastal plain.Formally protection forests have not yetbeen designated. Proposals to designate90,000 ha. as protection forest are inpreparation.

Protected areas cover over 2 million ha. or13% of the land surface. In the coastalplain, almost all mangrove forests andsome unique ecosystems are designatedas protected areas. The larger part of theprotected forest, including the 1.6 millionha. Central Suriname Nature Reserve liesin the remote interior. Despite the relative-ly high percentage, in relation to manyother countries, the nature reserves do notseem to cover all relevant ecosystems sys-tematically.

Besides the natural forests, there areapproximately 7,000 ha. of pine planta-tions and some smaller plantations ofbroadleaf species that were planted in thesixties, mostly by way of experiment.During the last 30 years there has notbeen any afforestation. There is a largelyuntapped timber stock of variable qualityon the present plantations.

Up to now, the integrity of the forest hasnot been threatened much and the degreeof deforestation is negligible. During thelast 10 years, less than 1% of the total for-est estate was converted into other uses.Conversion has mainly taken place for min-ing, generation of energy and agriculture.The realization of the plans for a new min-ing project in the Bakhuys area in combi-nation with the construction of a secondlarge storage reservoir will have dramaticconsequences for the forest and its func-tions in that area.

Timber from these conversion forests isgenerally not harvested. Another problemthat does not only occur in conversion, orin all cases of conversion for that matter, isinsufficient consultation of stakeholdersand the granting of overlapping licensesfor conflicting land use.

Finally, there is land use that lacks any sortof planning, such as uncontrolled goldmining and other mining activities, illegallogging, and theft of plants and animals.This proliferation poses a threat to theintegrity of the ecosystems, the environ-ment, the sustainability of forest manage-ment, the economy, and social stability.

§ 2.2Forest ownership and land rights

In accordance with the Constitution of theRepublic of Suriname (1987) all forests,except for those on privately owned land,belong to the state. Forests on private landdo not cover more than a total area of50,000 ha. The Constitution does not pro-vide for collective rights of land use.However, the indigenous and maroon peo-ple claim these rights. In some cases twoor more village communities claim thetenure of the same forest area. Within theforest communities, the younger genera-tion may have a different view of develop-ment and land rights and tenure than theolder generation. The state grants landtenure in the form of wood cutting rights,mining rights, and licenses for fishing, col-lection of non-timber forest products, andbioprospecting. In addition, land tenure isgranted for such purposes as agricultureand ecotourism. At the moment 2.2 millionha. has been issued as timber conces-sion.

Part of the forest, approximately 435,000ha., has been granted as communal woodcutting license (HKV) and since the ForestManagement Act (1992) as communityforest. It is estimated that 250,000 ha. ofthese forests is commercially logged annu-ally. Originally the purpose of the HKV wasto meet the needs for timber and non-tim-ber forest products for their own use by themembers of the communities who actuallylive in the villages. This is also true for thecommunity forests, but the ForestManagement Act explicitly adds the use forcommercial logging and clearance for agri-culture.The HKV was issued to the name of the vil-lage chief or captain. In many cases, theconsequence is that control of the rightsand the proceeds remain with the licensee.Because of this, the villagers do not get anequitable share of the benefits of theircommunity forests and the purpose ofgranting community forests was thus over-


Up to now,the integrityof the forest

has not beenthreatened

significantly


reached. In the case of commercial log-ging, the harvesting is mostly carried outby private logging companies. However,there is no integral management at all. Wecan safely say that only a few HKV’s aremanaged by the local communities them-selves.

Most of the community forests are situat-ed in the coastal plain and in the forestbelt. Because of the large distance fromthe commercial center, the central govern-ment has not yet granted communityforests in the remote interior. Under thesupervision of the traditional authoritiesthere is a satisfactory use of the forest.With a view to a more uniform arrange-ment for land tenure, the idea has arisento establish "economic zones" around vil-lages and settlements, where the peopleliving in the interior can have control.

§ 2.3 Economic, social and environmen-tal significance

§ 2.3.1 Timber production Forests are one of the most abundant natu-ral resources of our country, with a high eco-nomic potential. The annual national pro-duction is around 150,000 m³. Companiesowned by foreign investors account forapproximately 10% of that production. Thisproduction level is in sharp contrast with thepotential production level of 1-1.5 million m3.

To realize the timber production, the govern-ment grants timber concessions and in cer-tain cases short-term incidental wood cut-ting licenses. In accordance with the ForestManagement Act, the concessions aregranted for areas varying in size (up to150,000 ha.) and the duration (up to 20years). Apart from the private timber com-panies, there is one semi-governmentalwood enterprise, Bruynzeel SurinameHoutmaatschappij N.V., with a concessionarea of 150,000 ha. Bruynzeel is the largesttimber company with the greatest impact inthe sector. The government's declaration ofthe 2000 - 2005 policy states that theprocess of commercialization, and possiblythe privatization of the company, will beintensified. The last few years a large part ofthe national timber production comes fromnon-concession areas. Some 20% comesfrom HKV’s and community forests. An aver-

age of 20% of the total round wood produc-tion is exported. The export is mainlyunprocessed timber. Foreign investmentsaccount for 30 - 40% of the total export. Theexport is mainly to the Asian markets:approximately 65%, while approximately30% is exported to Europe and the UnitedStates of America. The annual foreignexchange income from this export amountsto US$ 4 - 5 million. Import of wood productsalso takes place. The import consists mostlyof wood panels, approximately 3,250 m³with a value of approximately US$ 1.5 mil-lion, and end products such as furniture,with a value of US$ 1.5 million.

The wood processing industry with morethan 70 sawmills, including smaller mobileand portable mills, has an installed capacityof about 600,000 m³ round wood per year.This is more than three times the currentnational production level. However, mostsawmills are obsolete, inefficient and workwith limited means. While part of the capac-ity is not utilized at all or only partly, invest-ments, albeit limited, have been made in thelast few years, especially in sawing capacity.The export can thus be increased.

Since the seventies the contribution of theforestry sector, including the wood industry,to the national economy and the stateincome has been limited to less than 3% ofthe gross national product and less than 1%of the total export value, which contrastssharply with the present potential. This isascribed to such factors a low utilizationlevel of the production potential and the verylow levies for forest use, which were chargeduntil recently.

The government has already taken a num-ber of measures to improve utilization of thepotential for timber production, to bring thelevies for this forest use in conformity withthe market, and to intensify control of pay-ment of these levies. In order to improve theforest management, market information,and international cooperation in this field,Suriname became a member of theInternational Timber Trade Organization(ITTO) in 1998. At the same time the privatesector has shown new spirit recently. Withforeign support, one company is now in theprocess of becoming certified for responsi-ble forest management. The PlatformHoutsector Suriname, where some fiveorganizations work together, (Chamber ofCommerce, Association of Loggers; GeneralTimber Union of Suriname; Society of


Forests areone of the mostabundantnaturalresources ofour country,with a higheconomicpotential


Surinamese Trade and Industry; Associationof Surinamese Manufacturers), has madeseveral proposals to improve the manage-ment and to increase the production. ThePlatform Houtsector Suriname also carriesout activities to improve the structure withinthe sector and to enhance the quality bystimulating and facilitating technical educa-tion and training, etc.

§ 2.3.2 Non-timber forest products Non-timber forest products, such as veg-etable products, meat products and freshwa-ter fish products are of vital importance to thenutrition and health of communities living inthe interior. However, this "in kind" income is,overlooked in the public accounts, althoughsome of these products are traded commer-cially, such as game, fish, live animals, orna-mental plants, fruits, herbs and medicinalplants and lianas. Some income generatingactivities, such as bioprospecting, scientificresearch and ecotourism, are being devel-oped as alternative commercial utilization ofthe forest by private individuals.

§ 2.3.3 EmploymentForest exploitation and the wood process-ing industry offer employment to approxi-mately 4,000 people. About half of thatnumber is employed in one way or another

in forest exploitation. Besides that, some500 persons are working in nature conserva-tion and research institutions. Altogether,that amounts to about 5% of the work force.

§ 2.3.4Social functionsThe forest serves as a dwelling-place andliving environment for an important part(possibly 10%) of our population. These aremainly indigenous and maroon people, whobelong to the least wealthy of our society.A large part of these Surinamese dependsdirectly on the forest for their survival andsubsistence.

§ 2.3.5Ecological functionsThe major part of our forests is still intact.In a global perspective, they are responsi-ble for the sequestration of CO2 and theconservation of the biodiversity, by offeringa natural habitat for many animals andplants, including endangered species. Inthe WWF Guiana's "Sustainable ForestResources Management" project documentit is estimated that 200 plant species and 6amphibian species are rare and endemic.Locally the forests fulfill important func-tions such as the regulation of the waterbalance, the maintenance of the waterquality, the maintenance of the soil fertilityby resisting erosion. The socio-economicsignificance of these ecological functionsis great, but financially this is hardly visi-ble. Because of this, there is a danger thatthese ecological functions will be sacri-ficed for seemingly more financially attrac-tive options for forest use. Now already theforest as source of fresh water is locallycontaminated. The international communi-ty also has a task to safeguard its interestin the conservation of the ecological func-tions of our forests.

Suriname is signatory to the most importantinternational conventions in the field of envi-ronment, including the Convention on Bio-logical Diversity (CBD), the UN Convention onClimate Change (UNFCCC), the UN Con-vention to Combat Desertification andDegradation (UNCCDD), the Convention onInternational Trade of Endangered Species ofWild Flora and Fauna (CITES), and theWetlands Convention.


To many of these Surinamese the forest will serve as their living and social environment.


§ 2.4 Capacity and institutions withinthe forest sector

§ 2.4.1 Personnel capacityThe Forest Management Act contains reg-ulations to improve the quality of forestmanagement, but the actual implementa-tion of the act is hampered because of thelack of sufficient personnel capacity inboth the private and the public sector. Theshortage of higher, middle-level and lower-level staff is felt throughout the sector, inthe government but also in trade andindustry. Also at the level of forest workersand supervisors, the capacity is insuffi-cient. Apart from that, there are still issuesthat need to be addressed regarding theintensity of the management and silvicul-tural prescriptions that can be appropriatein the predominant forest types in ourcountry.

§ 2.4.2Institutions Within the government, the Ministry ofNatural Resources was also made respon-sible for the care of the forests, naturereserves, game management, mining,energy, water and land management, byBesluit Taakomschrijving Departementen1991. By Instellingsbesluit 1947, theForest Service (LBB) was put in charge ofmanagement of all forests in the broadestsense of the word, including nature con-servation, with the specific task of: "sus-tainable management of the forest to thebenefit of the community".

Due to several causes, among other thingsthe interior war, LBB has gradually lostmuch authority and capacity in vital areas.With the arrival of Asian timber companiesin 1994, the need was felt to strengthenthe execution of government tasks again,especially in the field of management andsupervision of the logging activities. Forthis purpose, the Foundation for ForestManagement and Production Control(SBB) was established in 1998. In the cur-rent phase, SBB is in charge of the manage-ment of the production forests, especiallywith regard to facilitating trade and indus-try and supervising and controlling the log-ging activities. While the responsibilitiesare formally still with LBB, it is the intentionthat these are transferred to SBB.

The responsibility for the preparation and

implementation of the policy regardingnature conservation is still with LBB. Incompliance with the Nature ConservationOrdinance 1954, the head of LBB is incharge of the management of the naturereserves. The tasks resulting from this areexecuted by the department of NatureConservation of LBB with the assistance ofthe Foundation for Nature Preservation(STINASU). This foundation focuses on edu-cation and facilitates ecotourism and area-bound research. The Nature ConservationCommittee was established to give adviceregarding important management issuesand management plans. However, it is yearssince the committee has convened.

Other ministries such as Planning andDevelopment Cooperation (PLOS), Labor,Technological Development and Environment(ATM), Regional Development (RO), Trade andIndustry (HI), Finance, and Agriculture, AnimalHusbandry and Fisheries (LVV) have sharedresponsibilities for land use planning, envi-ronment, community forests, export leviesand industry, determining levies and phy-tosanitary matters. In relation to theNational Environmental Council and theMinistry of ATM, the National Institute forEnvironment and Development in Suriname(NIMOS) is responsible for the preparation ofenvironmental policy, environmental legisla-tion, environmental impact studies, etc.

The private forest exploitation- and woodprocessing industry is clustered in severalassociations and there are different inter-est groups for loggers, sawmills, manufac-


Headquarters of The Foundation for Forest Management and Production Control (SBB), founded in 1998.



Sawn wood produced by means of mobile saws constitutes a growingpart of the national wood production.

The forestsector can

make anappeal to anumber ofsupporting

institutes e.g.:JSOOC,

NATIN, andADEKUS

turers of wood products and timberexporters. Recently a coordinating PlatformHoutsector Suriname with representativesfrom several organizations has becomeactive. This development offers goodprospects for formal consultation betweenthe private sector and the state, to discussvital issues regarding forest utilization,especially logging and wood processing andto realize satisfactory solutions.

The forest sector can call upon a numberof supporting institutes, namely: the JanStarke vocational training center (JSOOC),that takes care of the education of lower-level staff; the Nature Technical Institute(NATIN), that offers a forestry course atmiddle level, and the Anton de Kom

University of Suriname (ADEKUS) whichoffers BSc-programs for forestry and envi-ronmental sciences. Forestry research isconducted by the Center for AgriculturalResearch in Suriname (CELOS), which islinked to the University, while STINATU andADEKUS are engaged in other aspects ofnature research. In paragraph 5.4 'Capacitybuilding: information, education, trainingand research', these institutes will be dealtwith in detail.


In this chapter we will assess the forest sector on the basis of the descrip-tion of the forests in the previous chapter: their significance and use, thewood industry and the institutional framework. With this brief assessment

we want to point out the challenges and the most important bottlenecks forthe forest policy. The assessment has identified five points:

– With the harvesting and processing oftimber and non-timber forest products,the forest area has the potential to con-tribute to the national economy and thewell-being of the people, in particularthe people living in the interior. Up tonow this potential has been exploitedonly partially.

– To a great extent the forests ofSuriname create the conditions for asustainable socio-economic develop-ment of the country. It is true that theyield of environmental functions suchas water regulation, supply of cleanwater, protection against erosion, CO2

sequestration, biodiversity does not(yet) appear on the public accounts, butnevertheless it is crucial for the econo-my of our country and the internationalcommunity. In the future, these func-

tions will probably grow in importanceand take a place in the market mecha-nism.

– Poor consultation and in relation to thatthe lack of conformity in the issuance ofland tenure has led to tensions, notablybetween traditional collective users andthe government and between traditional

collective users and individual users.This has intensified the discussion onthe issue of land rights. Furthermore,there is dissatisfaction among individ-ual members of forest communitiesabout their limited say in the collectiveland tenures that were granted.

The practice of overlapping licenses forincompatible land use, such as the min-ing of raw materials, sustainable log-ging and protection of biodiversity callsfor a solution in view of the efforts tomanage the forest in a sustainablemanner.

– The personnel capacity will have togrow in quantity as well as in quality, inorder to effect sustainable forest man-agement. This applies to all the agen-cies and parties involved in policy for-mulation, planning and implementa-tion, start with education, training andresearch. Parallel to this growth, theinvestment capacity will also have to beraised.

– The instruments the government has atits disposal such as legislation, theissuance of licenses and the impositionof levies, the enforcement of control,and government agencies determinethe conditions of the forest manage-ment. Adaptation of their contents andapplication of these instruments is nec-essary to achieve optimal forest use,with a view to a sustainable develop-ment of the economy.


The forestarea has the

potential tocontribute tothe national

economy andthe well-

being of thepeople

Motor saw train-ing: careful prepa-ration takes placebefore felling

3. ASSESSMENT OF THE FOREST SECTOR


It is not easy to summarize the points of theevaluation into one aim in which the separateelements are sufficiently recognized. We have

therefore chosen for one general main objectivethat is elaborated in three particular goals.

The main forest policy objective:Enhancing the contribution of the forests to thenational economy and the welfare of the currentand future generations, taking into account thepreservation of the biodiversity.

For this purpose the capacity to utilize thisnational resource in a way that is economicallyprofitable, socially justifiable, and ecologicallysafe will be developed. This means that threegoals of equal weight are contained in the mainobjective, namely:

Economic goal:Forests will be used efficiently and in a sustain-able manner in order to enhance the contributionof the sector to the national economy, includingforeign currency, government income, andemployment. For this purpose the potentialoffered by the diversity of products and servicesof the forest will be utilized as much as possible.

Socio -cultural goal:Raising the minimal subsistence level of the pop-ulation in general, and in particular of those peo-ple who live in and around the forests and whoare directly dependent on the forests for theirlivelihoods, such as the indigenous and marooncommunities. An important aspect of this is toparticipate, on the basis of full information, inactivities in and around their surroundings and toshare in the benefits and proceeds thereof. Thecultural values and traditions of the populationswill be respected in the planning and implemen-tation of these activities.

Environmental goal:Forests with a special protective function or waterstorage and supply function will be conservedand managed for that purpose. In order to main-tain viable populations of plants and animalsfound in Suriname, the network of representativeprotected areas for the diverse forest types willbe expanded and managed for that purpose.Production forests will be managed and utilized

in such a way that the negative effect on the envi-ronment will be minimized.

§ 4.1Realization

These goals can only be achieved with jointefforts of all the stakeholders in the forest sector.Every one has his own responsibility and role.Much depends on the willingness and the capac-ity of the business community to adapt to thedemands of technology, the market and the soci-ety. As long as the burning issue of land rights isnot resolved, it is not easy for the people living inthe interior to take a stand with respect to the for-mulation and implementation of the forest policy.Nevertheless, the realization of the policy willalso depend on the ability of these fellow-country-men to see and seize the opportunities offered bythis forest policy. The government wishes to sup-port them in this by entering into structural andconstructive consultation with them, in order toresolve the land rights issue in a way that givessatisfaction to all. For that matter, the govern-ment will try to realize the conditions for thedevelopment of a strong and sound sector bydeveloping and deploying all the instruments atits disposal. The government makes out a casefor resolving the bottlenecks pointed out in theassessment and utilizing the potential forimprovement, in collaboration with national andinternational partners and stakeholders.

Although the government intends to implementeach strategic action item, it will not be possibleto undertake all the actions at the same time.The government considers the following the mosturgent matters:

– Start a structural dialogue about land rights– Adapt the concession policy – Develop a national standard for sustainable

forest management– Transparent procedures for the designation

and re-categorization of actual forest use – Ensure a structural financial basis for the for-

est management organization


4. MAIN POLICY OBJECTIVE


T he main objective and specific goalsformulated above will be pursued byactivities in the thematic priority

fields dealt with below. The themes can besubdivided into three groups.

- The first group comprises thematicfacets that determine the necessary con-ditions to realize an enhanced contribu-tion of the forests to the national econo-my and welfare. To this group belong:Land use planning and land use rights.These facets are important for the real-ization of all specific goals for the use ofthe natural resource.

- The specific purposes for use form thesecond group. To this group belong: con-tribution to the economy -by increasingthe income from timber, non-timber for-est products and environmental func-tions of the forest and distributingthem equitably- and environmental pro-tection and protected areas.

- The third group comprises the institu-tional framework, capacity building andsupporting measures in the field ofland rights, legislation, policy coordina-tion, the provision of information, part-nership, strategic planning, and moni-toring and financing.

The themes are closely related to the prob-lems and challenges identified in theassessment. Each theme is introduced bya description of the most important bottle-necks and possibilities for improvement.An objective for improvement within thethematic field is formulated, as well as anumber of strategic action items to be(under)taken by the government in order totackle the bottlenecks and create the con-ditions under which the thematic goal canbe realized, in collaboration with the otherstakeholders.


5. THEMATIC GOALS AND STRATEGIES

The theme's are: 1. necessary con-ditions to realize

an enhancedcontribution of

the forests2. the specific

purposes for use3. the institution-

al framework,capacity building

and supportingmeasures

Capacity building: training inReduced Impact Logging (RIL)



Indicative division of the forest by the various destinations



§ 5.1Land use planning and land tenure

§ 5.1.1Use (planning)Given the high percentage of land coveredwith forest, forest use planning is one ofthe most important components of spatialorganization of our country. The signifi-cance of the forest area is not only consid-erable in terms of space, but it is also con-siderable in the development of varioussectors and the economy. Forestland andforests can be used for many purposes.The forest area of Suriname has a size andquality that is sufficient to meet the diver-sity of demands, including the conversionof forest to other land use such as agricul-ture and mining, assuming that the soil issuitable for the other land use.

A "suitability map" for the forest area couldbe an effective aid allowing insight into theactual use and the options for use, includ-ing conversion, and their effects on thenational economy and the welfare of theinhabitants of our country. However, ourcountry does not have the availability ofdata in such detail and quality as isrequired for making such a map. In thisrespect, the project "Geographic and LandInformation System" (GLIS), that is started,offers perspectives for the future. Sincethere is no suitability map, it is all the moreimportant to design good transparent pro-cedures for the designation of land andthe granting of tenure.

The agricultural use of the forest is con-fined mainly to shifting cultivation in par-ticular. In the NIMOS "Climate ChangeCountry Study" draft report, this area isestimated at 250,000 ha. The traditionaluse was gradually intensified. Here andthere shifting cultivation takes place with arotation cycle of only five years. In a fewplaces this has led to soil degradation. Oflate, an increasing need for conversion topermanent agricultural land has arisen.For this purpose, deserted land should beused first. In combination with researchspecifically aimed at this, there seem to bepossibilities here for rehabilitation ofdegraded land and improvement in theuse of agricultural plots. Also outside theforest communities there is a growingdemand for permanent agricultural land.In order to meet this demand, we should

first look into the possibilities degradedland has to offer. After mining activities theland is usually left fallow, with the risk oferosion and further degradation. Recentlya mining company has started rehabilita-tion activities on a small scale. The miningof raw materials and the inexpert construc-tion of roads threaten the supply and qual-ity of fresh water. Uncontrolled gold miningaffects the ecosystems and leads to soiland water contamination, thus endanger-ing health. Illegal logging undermines thestrive for sustainable forest managementand is harmful to bona fide companies andthe national economy. Poaching is harmfulto the practical value of the forest for theforest communities and to the biodiversity.

The allocation of the various land usescalls for regulation and an integral apprais-al and for a transparent and just decision-making. In this decision-making clarityabout tenure is a precondition. In practiceconflicts arise that have to do with rights,real or fancied, poor consultation and over-lapping licenses for incompatible land. Theformal basis for conversion is oftenunclear or is lacking. In the case of conver-sion, the value of the standing timber isoften not capitalized.

§ 5.1.2 TenureThe government grants land tenures forvarious purposes to private individuals, pri-vate enterprises and organizations, and tocommunities. An important form of tenureis the timber concession (1.5 million ha.)that is elaborated in chapter 4.2.1 on tim-ber production.

A considerable part (435,000 ha.) of thestate forests has been issued as communalwood cutting license (HKV) and since theForest Management Act 1992 as communi-ty forest. The last few years about 20% of the nation-al commercial wood production comes fromHKV’s and community forests. To achieve asustainable contribution, to the income gen-eration of the community as well as to theindustrial demand for timber, it is importantthat also in HKV’s and community forests theharvesting be done in a sustainable man-ner.

The lack of a democratic form of manage-ment - the HKV is issued in the name of thevillage captain who can make deals withthird parties without consulting the mem-

A "suitabilitymap" for theforest areacould be aneffective aidallowinginsight intothe actualuse and itspossibilities.



bers of the community - results in a situa-tion where not all members of the commu-nity get their fair share of the communalright. This is acknowledged in some areasand a beginning has been made withexperiments towards a more democraticdecision-making concerning the use of theforest and the distribution and spending ofthe communal income.

In some cases, the community forest is sit-uated at a large distance from the villagecenter so that subsistence use is ham-pered. Judging from what we see in prac-tice it is not clear what the criteriawere/are for determining the size and thelocation of the HKV’s that are alreadyissued and the communal forests that arenot issued yet. Such arbitrariness causestensions. Lack of clarity about the bound-aries of HKV’s and communal forests and

inadequate delineation give rise to con-flicts with other forest users and the gov-ernment.

Deeper into the interior, where the influ-ence of the market is not very significant,the use of the forest is arranged exclusivelyby the traditional authorities. However, thisdoes not mean that the people there arenot preoccupied with the resolution of theland rights issue, as everywhere else. Sofar, a structured dialogue between the gov-ernment and the people of the interior thatholds the prospect of a resolution has notyet come about. However, the governmentis aware of the importance of this issue.The lack of clarity and conformity partlyhampers the participatory developmentand implementation of policy regarding thenatural resources.

– Establish a central infor-

mation system for stor-

ing and consulting data

concerning the issuance

of land and land tenure

(cadastre).

– Produce a framework,

guidelines and proce-

dures, complying with

the process of decen-

tralization of adminis-

tration already started

in order to improve the

effectiveness, trans-

parency, participation

and justice of the desig-

nation and re-catego-

rization of the forest

(land) use. These will be

produced in a coherent

whole with the develop-

ment of conditions and

procedures for issuance

and consolidation of

land tenure.

– Produce guidelines and

procedures in order to

prevent issuance of

simultaneous, conflicting

land tenure on the same

forest area.

– Draw guidelines in order

to capitalize valuable

timber of conversion

forests.

– Prevent expansion of

the degraded land area

resulting from tradition-

al uses of agricultural

plots and rehabilitation

of degraded land.

– Redress the prolifera-

tion of illegal practices,

such as illegal gold min-

ing activities, illegal tim-

ber harvesting, theft of

plants and animals.

– Work closely with the

relevant government

departments and insti-

tutes to ensure that

environmental policies,

geared toward prevent-

ing and/or mitigating

environmental prob-

lems, are consistent

with the Forest Policy

and include mandatory

rehabilitation plans for

all mining activities

occurring in or near

forests.

– Promote democratic

management of HKV’sand community forests

and an equitable distri-

bution of the proceeds

of tenure among all the

members of the com-

munity.

– See to it that, when

issuing community

forests, the location and

size are in accordance

with the purpose of

these forests, that is to

say, that they should be

as close as possible to

the village center and

be of a size that is in

proportion to the num-

ber of the members of

the community living in

the village. The govern-

ment will, in consulta-

tion with the communi-

ties, establish clear

boundaries and super-

vise a clear delineation.

– Promote that commer-

cial logging in HKV areas

and communal forests

is in tune with sustain-

able management, as is

required for forest con-

cessions.

– Contribute to national

processes for settle-

ment of pending mat-

ters and conflicts con-

cerning land rights and

land tenure.

STRATEGIC ACTION ITEMS

Land use planning and Land tenureTo realize an optimal land use and transparentissuance of land tenure that is more in agreement with the sense of justice of all stake-holders.

POLICY GOAL



§ 5.2Contribution to the economy andsocial development

The forest contributes to the economy andsocial development through self-sufficiencyand the market, notably timber and non-timber forest products, and through the ful-fillment of crucial functions such as erosioncontrol, water storage and flow, which areessential for further social development.

§ 5.2.1Timber productionThe forest is under-utilized in respect oftimber production. The sustainable pro-duction potential of the forest is a fewtimes larger than the current productionlevel of 150,000 m3 even within the pres-ent area issued for exploitation. Moreover,expansion of the area of tree plantations,outside the Guiana Shield, could increasethe production potential considerably.

According to international standards, thenational timber production and wood pro-cessing is small-scale and obsoleteaccording to international standards. Adomestic well-equipped wood processingindustry aiming at exporting quality prod-ucts and meeting the local demand, wouldgive a surplus value to the nationalresource.

Foreign investors can contribute to a high-er degree of utilization of the productionforest if they bring with them investmentcapital, knowledge of international mar-kets, the capacity to manage large compa-nies and train local personnel. Theseaspects will play a role when admitting for-eign companies into the country. The for-eign investors now operating in Surinamedo not fully meet the above-mentionedqualifications. Presently, nine companiesfrom Southeast-Asia have the disposal of atotal concession area of more than800,000 ha.

The forest belt was made accessible by LBB

through the construction of more than1,000 km of main access roads and sever-al bridges. LBB was in charge of the main-tenance of the infrastructure. Transporters of wood paid the governmenta small fee to use the public forest roads.The construction and maintenance ofroads giving access to a timber concessionis the responsibility of the concessionaireconcerned. During the war in the interior in

the eighties, a large part of the road main-tenance equipment of LBB was lost. Sincethen the maintenance of the main accessroads has left much to be desired.

In the nineties the maintenance of the for-est access roads and bridges and the fur-ther opening up of the hinterland wastaken over by the Ministry of Public Works.Recently a Road Authority has been estab-lished, which is in charge of the construc-tion and maintenance of primary roads inurban areas and will gradually take overthe maintenance of the forest accessroads.

Owing to the present lack of financialmeans, the maintenance does not comeup to the mark and the quality of the infra-structure in the forest suffers greatly fromheavy transport, such as the transport ofgravel and wood. Consequently, the trans-port facilities of the local people are alsolimited. The government has established acommittee to prepare legislation for heavyroad transport, putting a limit to, for exam-ple, the axle-weight. In addition to this, thepossibility of transporting more of theheavy logs via rivers should be looked into.

Availability of credit facilities is essentialfor the development of the wood sector.Various companies in the sector haveproblems getting investment loans. InSuriname, the granting of credits is linkedto the possession of immovable property.But even companies with sufficient immov-able property in relation to the creditrequired, seem to have difficulties. Thebusiness community thinks that the way inwhich banks handle their credit applica-tions is not constructive. From the view-point of securing the provision of rawmaterials, a concession could have a posi-tive influence on the granting of credits. Inpractice this does not seem to make anydifference. A factor in the difficult processof granting credits is also the uncertaintywith regard to safety in the interior.

The sector needs a more adequate levy-sys-tem. Levies should be a reflection of thevalue that the natural resource has for thecommunity as a whole and they are theprice one has to pay for the use of the forest. The government should see to it that thevalue of the forest is reflected in the levies.For the business community the levies area cost component. In their opinion, there isa need for lower levies on balance and



they plead for the rescindment of the retri-bution (stampage fee) which is to be paidin advance. However, they agree with thegovernment that a higher per ha. levy isimposed because the phenomenon ofsleeping concessions could be tackled inthis way.

The past few decades were characterizedby a stagnant home market and the lack ofaccess to world markets. Traditionally theworld market offers sales potential for justa limited number of known species for spe-cific uses, and this only in sufficient andregular supplies. Information about theproperties of lesser-known species mayincrease their acceptance. Certificationcan become important for the develop-ment or consolidation of export (niche)markets.

The initiatives from both government andprivate enterprise open up perspectivesfor a more effective and socially moreresponsible wood production. Further development of the wood produc-tion policy will have the greatest chance ofsuccess in a partnership between the gov-ernment and the private sector.

The government has the key to create theconditions in which the private sector canoptimally develop and thus contribute fullyto the strengthening of the economy andthe government income from the naturalresource.

The most important government instru-ment with regard to wood production is theconcession. This instrument must beformed in such a way that it promotes thequality of the timber harvesting and/or theforest management and the increase ofwood production.

The concession policy should thereforemeet clear criteria. For example, it shouldbe attractive to investors and it should pro-mote wood production, ecologically soundforest management, social justice (sharingin the proceeds, safety, opportunities forlarge and small enterprises alike), cooper-

ation, and capacity building. This can beachieved by making the right choice withregard to the concession attributes, suchas the size and shape (delineation),length, regulations for management,levies, conditions to potential concession-aires (management capacity, competenceof staff, disposal of equipment), and trans-parent issuance procedures. These attrib-utes must be seen in combination witheach other and the choice of one or morecombinations will be argued in the light ofthe above-mentioned criteria. The way inwhich the commercial logging in communi-ty forests is carried out will also be consid-ered in the decision-making about that.Transparent procedures should alsoinclude transparent and impartial handlingof complaints about decisions made by theproper authorities. In that respect theestablishment of a complaints-committeeor a board of appeal is desirable.

The current concession policy and theimplementation thereof do not fully meetthe criteria mentioned. In practice it turnsout that many concessionaires do notmake full use of their rights. The competentauthorities may revoke the concessionwhen the operations have not started, asthey should, within a year after the licensewas granted. Since SBB has become opera-tional, steps have been taken leading tothe revocation of a number of large sleep-ing concessions. Nevertheless, thereremains a large area, which is under-uti-lized of not utilized at all, and seriousapplications cannot be honored. The littleinterest of trade and industry for conces-sions in the hinterland also plays a part.

A picture of the concessions issued, showsa right-angled patchwork quilt with a largevariety in size and duration. In the past,the topography and forest composition didnot play an important role in determiningthe boundaries. An overall but just reorga-nization seems necessary to create abasis for an adapted concession policy,which can stand the test of above-men-tioned criteria.



– Increase the wood pro-

duction for example by:

* Supporting the coop-

eration among the

local entrepreneurs

and the cooperation

between them and

third parties, in order

to increase invest-

ments in the sector,

and to promote local

and international

experience with

regards to production

and marketing.

Promoting the devel-

opment of an effec-

tive processing capac-

ity taking into

account the demands

of the market as well

as the (local) develop-

ment possibilities.

* Promoting the inter-

est of finance sources

that are attractive to

the private sector.

* Carrying out a just

reorganization of the

issued concessions,

in order to promote

an increased but

sustainable wood

production.

– Elaborate and imple-

ment a concession

policy that meets the

criterion that it

promotes for example:

* Willingness to invest

* Wood production

* Ecologically sound

management

* Social justice (sharing

in the proceeds,

safety, opportunities

to large and small

enterprises alike)

* Cooperation and

capacity building

* Good entrepreneur-

ship

– Adapt the levies as part

of the concession

system, in order to meet

the criteria for conces-

sions, to optimize the

income of the state

from the wood sector,

and to minimize the

burden of administration

and control.

– Draw guidelines

concerning the

procedure for lodging

objections (admissibili-

ty), including making the

legal provisions for a

transparent, impartial

handling of complaints

and appeals.

– Promote the construc-

tion of plantations with

fast-growing commercial

tree species.

– Also in view of certifica-

tion, develop a national

standard (criteria and

indicators) for sustain-

able forest management

and a Code of Practice

containing guidelines for

crucial aspects of

sustainable forest man-

agement (for example,

planning and inventory,

timber harvesting, water

and soil conservation,

conservation of biodiver-

sity and game manage-

ment).

– Promote the application

of international

standards for product

classification (grading),

phytosanitary require-

ments and certification.

– " Promote the develop-

ment of an adequate

infrastructure and of

measures to ensure a

responsible use of it.

STRATEGICACTION ITEMS

Wood production – To enhance the contribution of the wood industry to the national econ-omy, including foreign currency, government income, employment and the welfare of thepeople. To realize this the wood production, the added value of the wood processingindustry, and the export will be increased

POLICY GOAL

Round wood at the port site, intended for export.

A worker at a sawmill. Local wood processing creates extra employment.



§ 5.2.2Non-timber forest productsApart from the practice of self-sufficiencyof the communities living in the interior,non-timber forest products are also mar-keted to a limited extent. At the momentthere is little reliable information regardingthe quantity and value of these tradedproducts. Locally the sale of non-timberforest products constitutes an importantsource of income. The potential of thisincome source should be further investi-gated.

On January 1, 2003 a new Game Law wasput in place. This decree restricts theintensity and the duration of the huntingseason, giving less consideration thanbefore to the traditional use rights. Thiscauses tensions among the people livingin the interior. Furthermore, the grievancesof these people with regard to the use ofthe forest by other hunters still exist. Thesame is true for fishing.

Bio-prospecting is an activity that holdsprospects for income generation. The

Convention for Biological Diversity, inwhich Suriname is party to, creates theframework for the procedures for bio-prospecting. The Biodiversity Study Group(1998) has already put down a fewthoughts on this point and some otherstrategic aspects of sustainable use andconservation of biological diversity, whichcan be included during further elaboration.

The harvesting of non-timber forest prod-ucts and timber exploitation do notexclude one another from the very start,but they do require a coordinatedapproach. For this purpose, prior consulta-tion and consent based on fully open infor-mation (the Convention for BiologicalDiversity dubs this "prior informed con-sent") concerning the nature and effects ofany intended timber harvesting activity isessential. Research and monitoring shouldgive the necessary insight into the effectsof timber harvesting on the availability ofnon-timber forest products.

– Support appropriate

income generating activ-

ities in the field of non-

timber forest products

and ecological functions.

– Intensify information

about hunting and fish-

ing, taking into account

the traditional use by

the people living in the

interior, elaborate a

quota-system for recre-

ational and commercial

fishing and hunting.

– Develop and apply pro-

cedures for participation

by local communities in

intended commercial

harvesting activities in

their daily surroundings,

in order to ensure that

these activities are car-

ried out in good harmo-

ny and for the benefit of

all parties involved.

– Promote and support

research and monitoring

of effects of commercial

logging on the availabili-

ty of non-timber forest

products and effective

registration of the extent

and the value of the

commercially traded

non-timber forest

products.

– Design a protocol for

bioprospecting with the

objective to promote this

activity and to acquire a

fair share from (future)

proceeds.

STRATEGIC ACTION ITEMS:

Non-timber forest products – To enhance the material, but especially the financial, con-tribution of non-timber forest products to the national economy, to the income of the peo-ple living in the interior and of the government and to the welfare of the citizens byincreasing the commercial supply of non-timber forest products harvested in a sustain-able manner.

POLICY OBJECTIVE:



§ 5.2.3Ecological functionsGlobally our forests contribute to the con-servation of biodiversity and climate con-trol, for example CO2 sequestration.Unfortunately, the international communi-ty does not commit enough financial con-sequences to this interest. At a nationallevel the forests regulate the water bal-ance and maintain the water quality, main-tain soil fertility and a habitat for the com-munities living in the forest. The scenicqualities of the forest have a national aswell as an international significance.Intended activities in the forest will have tobe tested on the effect they have on theseimportant functions (environmental impactassessment).In the utilization of the forest for other rea-sons than timber or non-timber forest prod-ucts, activities such as management, super-vision, research, education and recreationtake place. These activities have the poten-tial to generate revenues and are often sup-ported by foreign financing. "Conservationconcessions" is a concept that deservesattention. Ecotourism is marginally developed but hasa potential to grow, provided the require-ments for competitive supply and interna-tional standards can be met. Within theframework of outdoor recreation, a licensesystem for hunting and fishing should alsobe developed in consultation with users ofthe forest areas concerned.

The significance of the forest for the econo-my as a source of a continuous supply offresh water and of high-quality drinking waterwill probably become clear in the long run,also in economic respect. Awareness of thedependency on water for the functioning ofthe society is growing while worldwide theavailability of water, and in particular cleanwater, is decreasing. In this respect, theforests of our country fulfill a crucial role forthe coastal area as well as for the hinterland.The mining of minerals, the construction ofroads and large-scale agriculture require anenvironmental impact study in order to pre-vent endangering the sustainability of thisfunction. The necessity for protecting watercollection areas is growing.

Based on the elaboration of the Kyoto proto-col (Convention on climate change) there arepossibilities to capitalize CO2 sequestrationthrough forests by means of issuing and sell-ing certificates. These are still complicatedconstructions that set high standards for reli-ability of measuring data and the mainte-nance of forests. Nevertheless, some mean-ingful transactions have been concludedbetween some large international enterpris-es. Also, international environmental organi-zations represented in our country haveincluded components in their programs con-cerning climate change that can supportknowledge and protocol development.

STRATEGICACTION ITEMS

Ecological functions – To enhance material and financial contributions of the ecological func-tions of the forest to the national economy, the income of the people living in the interior andof the government and the welfare of the citizens by capitalizing these functions.

POLICY OBJECTIVE

– Make studies of the value

of the products and servic-

es the forest provides to

forest users

– " Support innovative

finance sources based on

(commercial) use of the

ecological functions of the

forest, especially where

these involve benefits for

the local communities liv-

ing in the forest, and with

special attention for the fol-

lowing items:

* stimulate and facilitate

research and education

* utilize the possibilities

given by the market to

issue "conservation con-

cessions".

* support ecotourism and

recreational use of the

forest, for example by

granting licenses, pro-

moting adequate infra-

structure, etc.

* do research and make

use of the possibilities

provided by the Kyoto

Protocol and the market

for generating income

from CO2 sequestration.

* develop concepts that

show the economic sig-

nificance of our forests

as a sustainable source

of fresh water and a reg-

ulator of the water bal-

ance in the market

mechanism.

- Establish water collection

areas.

– Stimulate the international

community to express its

responsibility for and inter-

est in the conservation of

the environment in more

financial support.



§ 5.3Environmental protection and protected areas

The conservation of ecological functions isof crucial importance as already stated inparagraph 4.2.3. In view of this, we needto utilize the whole forest area with care.After all, these forests too, designated asproduction forests are indispensable forthe maintenance of the water regulation.They are also an important reservoir forCO2 sequestration and complement thenetwork of protected areas as a habitat forplants, animals and people.

In 1979 a study into the expansion of pro-tected areas in the lowlands was carriedout. This has led to intensified protectionof vulnerable and valuable nature areas inthe coastal and savanna zones. No sys-tematic study has been made into theextent to which the great biological diversi-ty in the remaining part of Suriname (theGuiana Shield) is covered by protected for-est areas. Consultation among the three

Guyana's has started in order harmonizethe allocation and management of protect-ed areas. This process is supported by the"Guiana Shield Initiative" of the IUCN andthe WWF "Forest Conservation Project".

Presently the financing of the manage-ment of protected areas and game man-agement is not in proportion to the extentof the tasks that have to be carried out.The consequence is weak management,pressuring the realization of the objectivesof these protected areas and jeopardizingSuriname's reputation in this matter. At thesame time, however, this is also a proof ofthe discrepancy between the commitmentto Agenda 21 and its actual realization byindustrialized countries.

The willingness of international organizationssuch as WWF, Conservation International (CI),UNDP/GEF, IDB and IUNC, to make a financialcontribution to the national efforts is animportant first step towards a broaderfinancing that is in proportion to the globalinterest of the ecological functions.

– Evaluate to what extent

all relevant and different

ecosystems occurring in

Suriname are represent-

ed in the cluster of

already existing protect-

ed areas, with the inten-

tion to realize protected

areas, where relevant, in

addition to the existing

ones, in particular in

the Guiana Shield.

– Establish protection

forests and protected

units within production

forests, where relevant.

– Carry out environmental

impact studies for

intended activities that

can have an impact on

the ecological functions

of the forest, with atten-

tion to fragmentation,

water-flows, storage of

drinking water, etc.

– Mobilize the community

to improve management

of protected areas.

– Promote regional coop-

eration, integration and

harmonization in legisla-

tion in the field of biodi-

versity and protected

areas.

– Enter into alliances with

international partners to

support the financing of

the management of our

forests in general, and

the management of pro-

tected areas in particu-

lar.

– Stimulate the interna-

tional community -within

the relevant internation-

al relations of Suriname-

to express its responsi-

bility for and interest in

the conservation of the

environment in a greater

financial contribution


Environmental protection and protected areas – Conservation of biodiversity and the cru-cial ecological functions by a responsible expansion and sustainable management of anetwork of protected areas, which is representative for the biological diversity of theforests in Suriname.

POLICY GOAL



§ 5.4 Capacity building: information,education, training and research

The lack of sufficient capacity in both theprivate and the public sector is one of themost pressing problems that need to beresolved. Capacity building to improvemanagement is required not only for thewood production sector, but also for thecommunity forests and the managementof protected areas. Information andawareness of the different roles of menand women in management couldimprove effectiveness and quality. Betterinsight in and understanding of forestmanagement will enable the public andthe stakeholders to play their part andenable them to participate as equal part-ners in the development of the sector.

The people living in the interior also havean increasing need for training and educa-tion, in order to manage the forests theyhave been entrusted with in a sustainablemanner and to earn a living from them. Many of the approximately 2,000 peopleworking in the primary forest sector havehad little formal education and training inthe skills necessary for the functioning ofa modern forest sector. The private sectorneeds additional education and training atall levels, from managers to supervisorsand operators. The concept of sustainableforest management and the technology,such as "reduced impact logging" are stillinsufficiently mastered and hardlyapplied. It is not only a matter of qualitybut also of quantity.

There is a great lack of well-trained forestworkers and forest guards. Elementaryvocational training, in particular theLower-level Technical School (LTS) pro-vides the basis on which specialized edu-cation for the forest sector rests.Professional and technical training in abroad range of skills enables forest work-ers to increase their productivity, worksafer and cope with the increasingdemands that are placed upon them.Thanks to this support that the Jan StarkeOpleidings en Ontspanningscentrum(JSOOC) received in the past few years, itis able to contribute to this educationalprocess again. The industry, representedin the Platform Houtsector Suriname, hastaken the initiative to set up a profession-al grinding shop that also serves as a

training center. This is an important devel-opment for the sawmills in our country.

Within the sector, the use of modern tech-noligies such as Global Positioning System(GPS) has increased of late. Moreover,with regard to the public sector, greatprogress has been made with the develop-ment and application of GIS for facilitatingand control. But here as well the quantityof well-trained staff is a bottleneck for theadequate execution of tasks pertaining topublic and private law.

The lack of higher and middle-level staff isfelt throughout the sector. However, thedemand for such personnel is limited, dueto the small scale of the industry and thelimited means of the government.

Capacity building is largely dependent onthe availability of good training.Unfortunately, here, too, is a lack of man-power to develop and implement full cur-ricula at secondary and academic level.The Nature Technical Institute (NATIN)offers a four-year vocational forestrycourse at secondary level. In the last fewyears the institute has been able to turnout a modest number (1 - 5) of graduates.However, most of these graduates do notend up in the sector, but find employmentelsewhere. Judging from the number offorestry students, the demand for aca-demic courses in forestry is very small inSuriname. It is obvious that we shall haveto seek regional cooperation. The faculty of technology of the ADEKUS

works in close cooperation with CELOS. Likeeducation, research is also an importantsupporting element for the development ofthe sector. Research provides the funda-mental and applicable information on whichsustainable forest management is basedand supports the development of method-ologies and technology for application in thesector. A few decades ago, CELOS had a lead-ing position in the field of tropical forestresearch. Forest research in Suriname isnow suffering from a lack of funds and aninadequate number of researchers. Abroadly based national forest researchagenda is lacking. The development of suchan agenda is also the responsibility of theagencies in charge of the preparation andimplementation of the forest policy. It isexpected that expansion of internationalcooperation will bring about a change in thissituation and give a new impulse toresearch and training of higher staff.



While the theoretical demand for highlyskilled and academically trained forestersis great, this is not reflected in thedemand, and forestry students have noprospects. This vicious circle of supply anddemand can be broken when the image ofthe sector improves.

– Establish one (semi-

governmental) forest

management organiza-

tion for the execution of

the core tasks of forest

management, including

the implementation of

the national forest

policy.

– Give information and

instruction to members

of the communities

living in the forest and

exchange experiences

and information with

regard to sustainable

forest management also

giving special attention

to the role of the woman

in this process.

– Promote attractive

professional career

possibilities

– Organize workshops and

seminars on a regular

basis to enhance the

competence of the

professional actors in

the sector.

– Improve safety and

health in the forest

sector by training forest

workers and supervise

the enforcement of

safety regulations.

– Stimulate the disen-

gagement of lower-level

personnel for further

professional training by

specialized institutes

and courses.

– Seek regional coopera-

tion for example in the

organization of courses,

training and workshops

and in the development

of modules for vocation-

al training and curricula

for higher and academic

education. This is to

enhance the profession-

al skills of forest work-

ers and to achieve the

development of full

higher education and

academic degrees in

forestry within the

region.

– Support further training

of (young) staff at BSc,

MSc and PhD levels by

entering into coopera-

tion with international

organizations and edu-

cational institutes and

by an effective scholar-

ship program.

– Implement a flanking

policy by promoting

scale-up, for example by

taking advantage of

cooperation among local

entrepreneurs, thus

enhancing the chances

of recruitment and fur-

ther training of person-

nel at all levels.

– Develop a research

agenda aimed at

supporting the forest

policy and the forest

management and based

on the need for insight,

information, methodolo-

gies and technology felt

by the stakeholders in

the forest sector.

– Develop and apply a

protocol for foreign

researchers ensuring

that they work in part-

nership with

Surinamese institutions,

that the research data

and knowledge acquired

is made available in

Suriname, that works

are published on joint

responsibility and that

the intellectual property

rights of Suriname on

the research results are

secured.


Capacity building: information, education, training and research –Develop and improve the professional and technical skills of all employees and partiesinvolved in the forest and wood sector and strengthen the scientific basis for forest man-agement. Promote capacity building in the training and research institutes.

POLICY GOAL



§ 5.5Institutional framework

The institutional framework is the total ofinstitutions, organizations, structures andprocedures in the public sector, the privatesector, the "civil society" and the relationsand linkages in between. This frameworkshould be tuned to the goals that are to berealized and the tasks resulting from them.Certain structures and organizations suchas communities living in the forest, unionsand ministries already exist. Other institu-tions and structures can be established oradapted especially to take on responsibili-ties and carry out tasks, for example, a for-est management organization, a natureconservation organization or the recentlyestablished Platform Houtsector Suriname.The separate elements (institutions, organi-zations, structures and procedures) thusplay a decisive role in (but can also bedetermined by) the distribution of respon-sibilities and tasks. First, there is the distri-bution among the government, the privatesector and the civil society, and secondly,the distribution within these groups.In chapter 4 'Main Objective', it was elabo-rated that the formulated objectives canonly be achieved by joint efforts of allactors in the forest sector. Every one hashis own responsibility and role. In order tobe able to say more about the desirablestructure of the government institutions,the responsibility and the tasks of the gov-ernment should be clear.

When the Dienst Bosbeheer was estab-lished in 1947, the role reserved for thegovernment regarding the forest manage-ment was considerably larger than the pre-vailing view. Initially the starting point wasthat the government would carry out all themanagement tasks. At that time, therewas little structure and capacity within theprivate sector. Nowadays the governmentconsiders its core responsibility to be thecreation of the conditions and the makingof the legal provisions within which theother parties can take up the executivetasks. In order to give shape to this respon-sibility, the government aims at the follow-ing core tasks:

– Policy development, this is a continu-ous participatory process where issuesregarding forest conservation, forestutilization, land tenure and capacitybuilding are central.

– Laws and regulations in order to createconditions and determine rules for therealization of the policy.

– Monitor and control the enforcement ofthese laws and regulations.

– Assist the business community by put-ting data and information at their dis-posal

In the last few years the trend of giving uptasks has set in. It is likely that this trendwill be continued until a new balance isfound, whereby the private and the civilsociety must be sufficiently equipped totake over tasks, while it is also possiblethat some tasks will completely disappear.The adaptation of the government machin-ery, that is taking place now, is aimed atthat development. Here it is not only a mat-ter of re-distribution among government,private sector and civil society, but also amatter of assigning responsibilities andtasks within the government, where a starthas been made with the decentralizationof administration. This also brings intofocus the structures that are characteristicof the traditional authorities.

The point of departure for adaptation ofinstitutes and structures is of course theexisting situation, described in detail inchapter 2 "Description of the forest sec-tor". With regard to the Ministry of NaturalResources, which is responsible for themanagement of the forest estate, includ-ing the nature reserves, this concerns:

– The SBB, which is in charge of the man-agement of the production forests,especially regarding the supervisionand control of logging.

– LBB, which still has policy responsibilityfor nature conservation and the man-agement of the nature reserves, in col-laboration with STINASU.

Given the relationship of the componentsof the forest policy and the balance thathas to be found in the designation of thevarious forest use areas, it seems obviousthat the preparation of planning and forestpolicy takes place within one forest man-agement entity. However, it is desirablethat the input of the different interestssuch as nature conservation, productionand traditional uses should come fromseparate departments. Bundling of taskswith regard to the enforcement of theForest Management Act, the NatureConservation Act and the Game Law, can



– Establish one (semi-gov-

ernmental) forest man-

agement organization

for the execution of the

core tasks of forest

management, including

the implementation of

the national forest

policy.

– Take administrative

measures so that the

forest management

organization will receive

a periodic financial con-

tribution from the pro-

ceeds of forest utiliza-

tion.

– Stimulate the develop-

ment and reinforcement

of relevant forms of

cooperation among

local communities, pri-

vate sector, scientific

institutions, and

(inter)national NGO’s or

other entities, to carry

out the day-to-day man-

agement of the forests,

independently and

financially wise, in

accordance with their

specific purposes.

– Identify the tasks to be

decentralized and

design procedures to

support their execution.


Institutional framework – Enhance the effectiveness and efficiency of the national forestmanagement structure and ensure continuity of financing to execute the tasks

POLICY GOAL

contribute to efficiency improvement.Arrangements with regard to the distribu-tion of tasks resulting from internationaltreaties on nature and environment will bemade with the Ministry of ATM and theNationale Milieuraad (EnvironmentCouncil).

The current separation of responsibilitiesbetween preparation of policy and execu-tion by executing services on the onehand, and policy and decision-makingregarding politically sensitive issues by theMinister on the other hand, will also bemaintained in the new structure.

The development and reinforcement ofindependent entities offers the bestprospects for an efficient and financiallywise management of the protected areas.

In such forms of cooperation in which thegovernment, as the responsible owner,participates out of its core responsibilityand tasks, local communities, private sec-tor, research and NGO’s can join forces.

The government will benefit from onestrong and well-quipped forest manage-ment organization. One bottleneck of thecurrent institutes and departmental divi-sions is the lack of funds. When a newstructure is established, the administra-tion is strong on an adequate financialbasis for the executing service so that itcan carry out its tasks, such as the collec-tion of levies. Apparently, this can best berealized by periodically putting aside afixed amount for that purpose, comingfrom the forest management income.



I n order to execute the strategic actionitems successfully, the administrationshall also undertake supporting meas-

ures as part of the forest policy.

§ 6.1 Land rights

A satisfactory resolution of the land rightsissue within an acceptable period of time,is in the interest of the whole nation. Forthis purpose activities such as these shallbe undertaken:– Make a study of the resolutions that

have been reached with regard to thisissue, notably within the region.

– Realize a structured consultation betweenthe government and the people living inthe interior.

– Implement the legislation, policies anddirectives on land use as establishedby the Government.

§ 6.2 Laws and regulations

The execution of the strategic action itemsshall be supported by revision of the exist-ing laws and regulations regarding forestmanagement, which do not adequatelyreflect the objectives of the forest policythat is currently being formulated. The revi-sion includes among other things:– An integral amendment of the laws with

regard to forest and nature conserva-tion in order to adapt them to the pres-ent-day demands and to effect bettermutual agreement.

– Stimulate amendments in policy andlegislation outside the forest sectorthat may hamper the adequate execu-tion of the forest policy.

§ 6.3 Policy coordination

The administration shall see to it that itsforest policy remains in harmony with thenational development and environmentalgoals. The effect of the policy and the pro-grams of other departments and govern-ment services will be evaluated on a regu-lar basis. This will take place by means of,for example:– Continuation of the inter-departmental

consultation that was started as part ofthe formulation of the forest policy byat least one annual Forest PolicyAdvisory Board meeting.

– Making studies, at the advice of theadvisory board, into the effects of poli-cy, programs and projects of otherdepartments and government serviceson the forest sector .

§ 6.4Information

Timely delivery of accurate and reliableinformation is crucial to the developmentof the sector and the implementation ofthis policy. The administration shall see toit that such information is gathered, ana-lyzed and delivered in time to all parties.This will involve a number of the followingactivities:– The development of criteria and indica-

tors for sustainable forest manage-ment at a national level and the collec-tion and dissemination of informationregarding the indicators.

– Make statistical reports with activeinput of other actors in the sector andsubmit them to the international organ-izations to whom Suriname is commit-ted.

– The Forest Authority will make an annu-al report .

6. SUPPORTING MEASURES



§ 6.5PartnershipThe administration shall continue the dia-logue that was started with all the stake-holders and parties involved in order toensure that the implementation of the pol-icy equitably serves the interests of all andcontinues to have a broad social basis.– Periodic consultation with stakeholders

to reach consensus regarding specificissues on the elaboration and imple-mentation of this forest policy.

– Regular consultation with internationalpartners in order to receive their techni-cal, financial and political support forthe implementation of this forest policy.

§ 6.6 Strategic plan and monitoring

Implementation of this forest policyrequires further elaboration. The continua-tion will be closely monitored and the for-est policy itself will be periodically evaluat-ed and, where necessary, adapted. Thismeans:– Elaboration of action items in strategic

plans and their execution

– Monitoring of the progress of the imple-mentation of this policy

§ 6.7

Financing

The national effort to draw and executestrategic plans will benefit from financialcontribution of the international communi-ty. It will be necessary to create conditionsso that potential support is converted intoactual support. For that purpose theadministration shall:– Establish a forest fund to channel inter-

national funds meant for the support ofthe implementation of this forest policy.

– Promote the financing of capacity build-ing and investments to the private sec-tor by development banks

Paramaribo, 28 March 2003

For the effectivemonitoring of thelogging activities,

felled trees must belabeled with a

polythene tag with aunique number.



A: ABBREVIATIONS

ADEKUS Anton de Kom University of SurinameATM Ministery of Labor, Technological Development and Environment BSc Bachelor of ScienceBSH Bruynzeel Suriname HoutmaatschappijCBD Convention on Biological DiversityCELOS Center for Agricultural Research in SurinameCI Conservation InternationalCITES Convention on International Trade of Endangered Species EU European UnionFAO Food and Agriculture Organization of the United NationsGEF Global Environmental FacilityGIS Geographic Information SystemGPS Global Positioning SystemHKV Communal Wood Cutting License IDB Inter-American Development BankITTO International Tropical Timber OrganizationIUCN International Union for the Conservation of NatureJSOOC Jan Starke Vocational Training CenterLBB Forest Service LTS Elementary Technical SchoolMSc Master of ScienceNATIN Nature Technical Institute NB Nature Conservation Division of LBBNGO Non-Governmental OrganizationNIMOS National Institute for Environment and Development in Suriname PhD Doctor of Philosophy PLOS Ministry of Planning and Development CooperationRO Ministry of Regional DevelopmentSBB Foundation for Forest Management and Production ControlSTINASU Foundation for Nature ConservationUNCCDD United Nations Convention to Combat Degradation and DesertificationUNFCCC United Nations Framework Convention on Climate ChangeUSD United States DollarVN United Nations WWF World Wide Fund for Nature

B: DEFINITIONS

Sustainable forest management)*: The process of managing forests to achieve one ormore clearly specified objectives of management with regard to the production of a con-tinuous flow of desired forest products and services without undue reduction of its inher-ent values and future productivity and without undue undesirable effects on the physicaland social environment.

)*. This definition (one of many) is from the International Tropical Timber Organization (ITTO).

ABBREVIATIONS AND DEFINITIONS


National Forest Policy of Suriname · 1 National Forest Policy of Suriname National Forest Policy...

Documents

Transcript of National Forest Policy of Suriname · 1 National Forest Policy of Suriname National Forest Policy...