ABSTRACT
Forests are a national heritage that must be protected in the
interest of society; but they are also an economic resource that
must be utilized for the well-being of the same society. This
dual quality of the forests creates tension but it is expected
that a credible path will be carved for ensuring the sustained
presence of the forest to serve mankind at all times. Whether
it is economic utilization or species conservation, there is a
responsibility to ensure that social and national needs are not
unduly destroyed or even frustrated.
Forest management has been practised in Ghana since the closing
decade of the twentieth century but it was not until 1927 that
the legal power to enforce conservation was secured. Since then,
a consistent policy of selection, demarcation and reservation
has been vigorously pursued.
The presentation intends to illustrate Ghana's efforts in the
application of sustainable forest management practices and policies
adopted to incentivate people's and industry participation in
this huge undertaking.
Introduction
Forest Resources of Ghana
The High Forest Zone, which is virtually natural
forest, covers an area of 8.2 million ha, approximately
one-third of the total land area of Ghana. The High Forest occurs
in the south-west portion of Ghana, extending northwards to reach
the upland evergreen areas of Ashanti Region and western parts
of Brong Ahafo Region. The High Forest in Ghana consists of the
wet evergreen rainforest and the moist semi-deciduous forest.
Available studies indicate that 1 634 100 ha
of the high forest are under reserves. Of this, 352 500 ha
(21.5 percent) are under permanent protection while 762 400 ha
are designated timber production area. Information about off-reserve
areas is sparse but it is generally accepted that there are about
400 000 ha of forest in off-reserves.
The present state of the forests requires that an
intensive management plan be put in place to reduce the high rate
of degradation. Of the 352 000 ha of protected forests,
as much as 32 percent degradation has occurred and efforts
are being made to rehabilitate 122 000 ha of that. On
the whole, the forest of Ghana contains a standing volume of 188 million
m3 of wood and it has a natural growth rate of 4.6 million
m3 at an increment rate of 4m3/ha/yr.
Plantations
Plantation forestry is relatively new in Ghana.
Currently, there are some 40 000 ha of plantation consisting
of about 15 000 ha planted by the Forestry Department
and the rest by forest industry firms and a large numbers of small
holdings with teak as the main species. The annual yield from
these is 50 000 m3 but this is expected to increase
with the years as more companies and individuals have intensified
activities in commercial planting.
Land Ownership Patterns
In Ghana, all the land belongs to the traditional
stools (chieftaincy) but they have been vested in the President
of Ghana to be managed on their behalf. Legally, this means that
the land owners have lost the right to allocated the resource
but do retain the right to benefit from the resource. The system,
therefore, allows for traditional landholding authorities (stools)
to hold allodial title to land on behalf of the people. Members
of the landholding group have usufruct rights and may permanently
appropriate a portion of land. Migrants in a particular traditional
area may, however, acquire land by outright purchase or by leasing,
usually under customary law.
There is a great difficulty in coming up with a
system of land use acceptable to all. However, the Ministry of
Lands and Forestry has over the last five years been working on
land use policy. The policy is expected to be announced soon.
Contribution of Forests to Economy of Ghana
The importance of the timber industry can be examined
from several angles but for the moment, we may consider the employment
benefits and contribution to GDP.
About 75 000 adults/household heads were employed
in the industry as at 1994 while 2 million people lived off
the industry (TEDB 95). This situation has changed since 1996
with the industry now employing 100 000 household heads and
not less than 3 million people depend upon the industry for
their livelihood.
In a country where the level of unemployment is
as high as 20 percent, the industry's ability to maintain
such a level of employment is very significant.
Foreign earnings from the sector have also been
rising over the years. For instance, in 1994 timber exports contributed
18 percent to total external earnings of Ghana. In 1990,
the overall contribution of the forestry sector to GDP was 5.1 percent.
In 1995, timber exports alone contributed US$ 230 million
which was 11 percent total export earnings. Export earnings
from Non-Timber Forest Products (NTFPs) are rising steadily and
constitute a new area of employment for Ghanaians.
Without doubt, the forest industry has the potential
to increase its contribution to the country's economy but this
can be realised only when more enabling policies are put in place
and industry also moves rapidly into further processing.
Sustainable Forest Management
Historical Background on sylvicultural and Harvesting
Practice
Forest management has been practised in Ghana since
the closing decade of the twentieth century but it was not until
1927 that the legal power to enforce reservation was secured.
Since then, a consistent policy of selection, demarcation and
reservation has been vigorously pursued. By the end of 1978, about
3 267 250 ha of forests had been placed under permanent
forest estate.
From 1900, the granting of concessions to companies
for timber exploitation began. Game production reserves and wildlife
sanctuaries were created. There exist five national parks, two
of which are located in the tropical forest zone. In all these
areas, timber exploitation is forbidden by law.
Various sylvicultural systems have been practised
including the normal logging effects on silviculture in selected
areas. In the 1950s the Tropical Shelterwood System was experimentally
tried but it was abandoned because it was not cost-effective.
It consisted in eliminating the uneconomic trees while allowing
the rest to grow into maturity. Various methods, including poisoning
of the trees, were used to reach the goal. Taungya system which
was copied from Southeast Asia at the beginning of the century
is also used but mainly for plantation programmes. Almost all
the plantations set up by the Forestry Department were through
the taungya system. Farmers were encouraged to farm at the selected
areas, especially hillsides, and while their foodcrops were growing,
planting of trees was also carried out. This practice is randomly
performed even today by individuals and most rural communities
and it is expected that the Forestry Department would revive the
system as it gears up its activities to increasingly improve Ghana's
forest. It may be necessary to recommend this practice to the
companies that have begun to set up plantations.
Financial and Other Incentives for SFM
Incentives have long been thought of by the government
as a way of motivating forest exploiters and others to respond
favourably to the needs of forest protection and conservation.
In 1993, the government commissioned IIED to conduct a study into
this area and the results re-emphasised the need to inject varied
forms of incentive systems into the quest for a more efficient
system for sustainable management of the forest.
In addition to royalty payments and other forest
fees, there is the need to actively engage the rural people, the
forest dwellers, to participate in forest protection and improvement
systems. To be able to achieve this, the Forestry Department has
embarked upon a number of approaches including programmes such
as Collaborative Forestry, Social Responsibility Systems, etc.
It is most important to recognise that without bringing in the
rural people on whose land the forest grows, any effort to significantly
improve the forest will not succeed.
Involving the local people means making them see
the forest as an economic asset which they owe in partnership
with others and that, if they took good care of the forest along
the lines of sustainability, as put forward by the government,
they would reap financial gains. This is what has been called
the "joint-forest system". Already, one of the leading
timber companies in Ghana, Ghana Primewood, has undertaken a "joint-forest
management" project with the people Gwira Banso in the Western
Region of Ghana. The Project is supported by DANIDA and already
there are verifiable indications that the local people's interest
will crystallise in improved sustainable forest management in
that area.
Incentives need not only be given to the rural people
alone. All other actors on the forest scene must be considered.
If industry will need to accept a far greater responsibility for
the resource, it is obvious that it will also need to have some
incentives. Incentives such as deregulation, participation in
policy formulation and financial allowances in the form of investment
packages of low interest rates are recommended. There are indications
that the government is evolving a system, though slowly and not-transparent
enough, towards benefits in direct proportion to responsibility
and for this, industry looks forward to its attainment in reality.
Above all, there is the need to adequately equip
the Forestry Department and for this the government has been very
slow in doing it. The Department lacks logistics which will enable
them to put into practice the many action plans it has designed.
Vehicles, buildings and tools, are in great demand for the successful
implementation of management plans.
New Harvesting Practices
Responsible harvesting has become a necessary ingredient
in sustainable forest management in Ghana. To the extent that
proper procedures would be adopted by both District/Technical
Officers of the Forestry Department, as well as concessionaires
for operators in the forest, the Planning Branch of the Forestry
Department provided a "Handbook of Harvesting Rules for Sustainable
Management of Tropical High Forest in Ghana" in 1992. The
book serves as a guide to all forest exploiters to enable them
bring their practices in keeping with the sustainable forest management
plans. Issues discussed in the book range from planning considerations
through operational considerations to environmental considerations.
In line with recent studies, the policy document of the Ministry
of Lands and Forestry places a maximum limit on an annual harvesting
volume of timber. The Master Plan directs that only 500 000
m3 and between 300 000 m3 and 500 000
m3 of the resource can be harvested annually from the
reserves and off-reserves, respectively. Even though studies are
incomplete especially with the Off-Reserves, the Forestry Department
has already begun implementation of an interim measures which
set the Annual Allowable Cut (AAC) at 1.0 million m3.
This AAC figure is, indeed, a recommendation by the UK Forestry
Commission to the Forestry Department. As a matter of fact, the
Forestry Department had set 807 000 m3 for the
AAC. It is the considered opinion of the Forestry Department that
any level of harvesting beyond this will not make management of
Ghana's forests sustainable. Within one year of the implementation
of this policy (1995-1996), export volume dropped by 34 percent.
The "Harvesting Rules" sets standards
for harvesting and the schedule requires the concessionaire to
produce a Logging Plan which ensures that the expected operation
is in line with the management plans. Yield is also regulated
according to the trend in a stock survey which is carried out
prior to the allocation of the concession. The operational plan
of the concessionaire should contain schedules of construction
of logging roads, bridges, culverts, skidding tracks and also
the felling activity. All these will have to be approved by the
District Forestry Office (DFO) and then by the Regional Forestry
Officer (RFO) before permit to fell can be issued to the concessionaire.
In addition, the concessionaire must comply with environmental
standards set by the Forestry Department. These include the use
of environment-friendly equipment, felling of specified species,
respecting protected areas such as sanctuaries and headwaters.
Lastly, the concessionaire must practise safety standards in his
operations and there are rules that must be followed. Recently,
the Forestry Department introduced further measures to ensure
effective management of the forest, especially when illegal fellings
intensified.
Without doubt, the management plans for the sustainable
development of Ghana's forests cannot fail to succeed conservation-wise
if these plans are carried through. However, it is the view of
the private sector (industry) that sustainability programmes should
also ensure that forest industry is enhanced. It is important
that the views of those who are the real implementers of the plans
are incorporated in the plans. The timber industry association's
critical objection to certain aspects of the measures were addressed
to the Forestry Department but action towards them are either
in piecemeal or are moving at very slow pace or in some areas
totally ignored.
Future Wood Supply to Industry
Future supply of wood to industry is very precarious.
The implementation of the maximum AAC of 1 million m3
is obviously going to affect the supply of logs to the mills because
the capacity of the processing plants far exceeds what the AAC
allows. In recent times, the Ministry of Lands and Forestry has
indicated that there would be the need to reduce the capacity
of the processing plants by a minimum of 33 percent. It was
indicated in 1993 that the installed capacity of the mills was
in the order of 2 000 000 m3 year and that
this was well in excess of what can be sustained by the resource.
But the demand for timber has increased over the
past five years, especially for domestic consumption. With increasing
demand from housing industry which is receiving a boom, timber
and wood supply has become a brisk business. It is estimated that
domestic needs of timber is in the region of 1 500 000.00
m3 as at 1995 (excluding what is used directly in the
villages). Some analysts even believe higher figures are involved.
Wood exports in 1995 amounted to 547 000 m3.
It needs, therefore, no imagination to realise that
supply of timber or wood will experience an acute shortfall in
the wake of the implementation of the new AAC. Some have opined
that it is the intention of the Ministry of Lands and Forestry
to force skewed supply system so that some companies will naturally
fall out in order to reduce the capacity. But the point is that
the demand will not abate and this will lead to increased illegal
activities to deplete the forest. The issue is a big one and it
is important that all parties be involved in designing an effective
strategy to counteract it.
Forest Depletion
Ghana experiences deforestation like most countries
in Africa. The Sahara desert is said to be advancing southwards
at a threatening rate and this translates into increased savanisation
of the forest areas.
Deforestation is, indeed, a phenomenon occasioned
by the increase in the number of human beings. There are more
mouths to feed than 50 years ago when the population of Ghana
was less than 6 million. Farming activities have increased
and demand for energy has also increased. It is estimated that
farming and woodfuel (including charcoal) procurement accounts
for 79 percent of all the removals from the forest. Indeed,
the Ministry of Mines and Energy has it on official record that
the charcoal industry and woodfuel account for 15 million
m3 of trees removed annually from the forest. At the
per caput consumption rate of about 1 m3 of fuelwood
and 0.2 m3 of charcoal, the production in 1980 can
be estimated at 11 500 000 m3. Probably,
if measures were to be taken to curtail this unacceptable level
of woodfuel and charcoal consumption, the rate of forest destruction
would be reduced to manageable levels.
Social Aspects of Sustainable Forest Management
The Government of Ghana envisages that as management
plans are implemented, social needs would emerge and they would
need to be addressed since the government policy seeks also to
see "all segments of society benefit from the sustainable
development" of the forest resources.
The rationale behind the government policy is that
when others are removed from the management system, their actions,
wilful or otherwise, will adversely affect the sustainable forest
management plans. Therefore, as it has been pointed out earlier,
it is necessary to get all parties, especially local people, involved
in the process. But for local people, it is only when the forests
have real value to them will they see the need to co-operate in
efforts to protect and manage the forest. The 1994 Forest and
Wildlife Policy makes adequate provision to attract the local
people to participate in forest management. Looking at the thrust
of the emerging policies in the forest sector, local people will
in future be offered the opportunity to share in the financial
wealth of trees in his farm. Currently, farmers are compensated
financially when commercial trees on their farms are felled. There
is now a growing propensity among local people to strive to provide
ingenuous ideas towards forest protection. In addition to this,
timber firms operating in the forests provide a lot of social
needs for the people. Indeed, a "social responsibility"
performance requirement is to be part of the new concession law
being prepared.
Forest Certification in Ghana
What is Forest Certification?
Forest certification has engaged the attention of
the government of Ghana for the past three years. Several consultations
have been made both inside and outside the country and there are
already measures under way to address the issue. Ghana's approaches
have been guided by its understanding of what certification means.
Forest certification is the assessment of management quality of
a specified forest by a single organisation against an acceptable
international standard. It is seen as an effort towards effective
sustainability of the forest. In the view of industry, the purpose
of forest certification is so crucial that its execution should
not be left in the arena of marketing alone. As a marketing tool,
certification risks failure if the efficiency of the market place
declines. In other words, an environmental issue cannot be adequately
addressed by relying on the dictates of market.
However, looking at the general movement and direction
of certification, this view of industry in Ghana is less popular.
Ghanaian Approaches
Ghana has adopted the approach of sensitising grassroots
perceptions and with that build a consensus for national initiative.
A national Workshop was held in June 1996 for all stakeholders.
At this Workshop, an important initiative was adopted and that
was the setting up of a National Certification Committee, comprising
a wide spectrum of stakeholder representation. From the National
Committee, a National Technical Committee was appointed to design
standards for certification in Ghana.
The National Certification has held two meetings
since and will soon meet to discuss the interim report of the
National Technical Committee. The standards will be widely discussed
before adopting a final set of standards and criteria. It is desired
that those standards be in conformity with FSC Principles, ITTO
Guidelines and ISO Format though they will maintain unique character
reflecting the special circumstances of Ghana.
Issues that have been Discussed
Some of the issues that have been and continue to
be discussed are:
- voluntary, transparent and non-discriminatory
nature of certification;
- cost-effectiveness, credibility and purposefulness;
- who pays for the certification cost;
- national and international standards conformity;
- need for chain of custody;
- accreditation and local bodies' readiness to
certify;
- trade impacts and national economy;
- can certification adequately promote sustainability
process.
All these are major issues and it takes time to
reach acceptable solutions.
Regional Workshop on Certification
Owing to Ghana's critical approach to certification,
it has been the focus of international interest in the sub-region
which culminated in the holding of a Regional Workshop in Accra
in November 1996.
The Workshop took a critical appraisal of forest
certification and assessed individual country approaches, sharing
strengths and discouraging weaknesses. Major conclusions were:
- certification should be a step-by-step approach
in Africa;
- standards must cover both performance (operations)
and process (policies);
- national peculiarities should be accommodated
in the standards;
- local technical competence should be strengthened
and increased;
- cost-sharing should be initially practised by
both sellers and buyers;
- consuming North should be informed that "Africa
is on her way";
- boycott-happy countries should back out;
- donor-agencies should offer financial packages
to propel take-off;
- pilot projects should be set up to demonstrate
practice;
- local people should be educated.
Conclusion
It is most important for all to recognise that
the forest is a national heritage that must be protected in the
interest of society but, at the same time, it is an economic resource
that must be exploited for the good of the same society. This
dual-quality of the forest creates tension and it is the expectation
of posterity that the present generation will employ its immense
knowledge and wisdom to carve a credible path for ensuring the
sustained presence of the forest to serve mankind at all times.
Whether it is economic exploitation or species conservation,
there is a responsibility to ensure that social and national needs
are not unduly destroyed or even frustrated for the world and
all that it contains is meant for the good of mankind.
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