Joint Forest Management Experience with participatory forest management gained in Gorno Badakhshan Autonomous Region (GBAO) of Tajikistan between 2006 and 2013 GIZ Regional Programme Joint Forest Management Experience with participatory forest management gained in Gorno Badakhshan Autonomous Region (GBAO) of Tajikistan between 2006 and 2013 Khorog, May 2014 2 Contents Preface .................................................................................................................................................................................. 4 1. Forests and forest management in Tajikistan and GBAO ................................................................................ 5 2. Overview of Joint Forest Management in GBAO............................................................................................... 6 3. Introduction of Joint Forest Management .......................................................................................................... 8 4. 3.1. Field visit ............................................................................................................................................................ 8 3.2. Information seminar ....................................................................................................................................... 9 3.3. Community agreement................................................................................................................................ 10 3.4. Selection of forest users .............................................................................................................................. 10 3.5. Demarcation and allocation of plots ........................................................................................................ 11 3.6. JFM contract .................................................................................................................................................. 12 3.7. Management plan and annual plan .......................................................................................................... 13 Implementation of Joint Forest Management ................................................................................................ 15 4.1. Monitoring of the annual plans ................................................................................................................. 15 4.2. Technical training and assistance .............................................................................................................. 15 4.3. Harvest and sales of forest products ........................................................................................................ 16 4.4. Conflict management .................................................................................................................................. 17 4.5. Forest user groups ........................................................................................................................................ 18 5. Attachments ............................................................................................................................................................ 19 6. Abbreviations .......................................................................................................................................................... 20 7. Literature.................................................................................................................................................................. 21 Notes .................................................................................................................................................................................. 22 3 Preface Since its independence in 1991, the forests of Tajikistan have been degrading due to the local population`s high demand of firewood and the de facto open access to the forests. As a reaction to this situation, the State Forest Agency (SFA) of the high-mountain Gorno Badakhshan Autonomous Oblast (GBAO) decided to introduce a participatory forest management approach called Joint Forest Management (JFM). The SFA allocates and leases forest plots of different sizes to local villagers, granting them long-term use rights for at least 20 years. In return the SFA receives a share of the harvest of forest products. At the same time, the forest user takes over obligations regarding forest management. The SFA of GBAO was supported in piloting the JFM approach in the village of Barvoz (Roshtkala district) in 2006, and in introducing it on a wider scale in three districts of GBAO, by the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH, implementing projects on behalf of the German Ministry of Economic Cooperation and Development (BMZ) and the German Ministry for the Environment, Nature Conservation and Nuclear Safety (BMU). By the end of 2012, about 400 forest users were managing approximately 2,000 ha of riparian forest. resources in Centr present and share their experience with JFM from 2006 to 2013. After outlining the framework conditions, a detailed description of the steps taken for the introduction and implementation of JFM is presented. We hope that this documentation will facilitate the realization of future participatory natural resource management approaches in Tajikistan and elsewhere in Central Asia. Abdulnazar Abdulnazarov Director State Forest Agency GBAO 4 Dr. Stepan Uncovsky ustainable Use of Natural 1. Forests and forest management in Tajikistan and GBAO Tajikistan covers an area of 143,000 km², only 7% of which is arable land. According to official statistics, around 3% of Tajikistan is covered by forests. The climate is continental, with little precipitation, cold winters and hot summers. The topography of the Gorno Badakhshan Autonomous Region (GBAO) in Eastern Tajikistan is characterized by the high ranges (up to 7,495 masl) of the Pamirs. The population is concentrated in the steep valleys in which irrigation allows agriculture. Forests are rare (0.07 % of the area) and mainly grow in the alluvial plains of the rivers at altitudes between 1,500 masl and about 3,500 masl (tugai forests). The dominant species are willow, poplar and sea buckthorn. In some places, also dog rose, apricot, cherry, apple, pear and herbs grow wildly or are cultivated. Many of the forests existing today were planted in Soviet times and have been irrigated artificially, especially in the Ishkashim district. Riparian forest near the village of Barvoz, Roshtkala district. Forest land belongs to the state and is managed by governmental forest administrations. The State Forest Agencies (SFAs) work on the basis of central planning and top-down management. Each SFA is a controlling authority as well as an enterprise, and it is financed partly out of the state budget and partly out of the profit it makes as an enterprise. Since the independence of Tajikistan, the SFAs have been underfunded and lack basic equipment and means of transport. 5 2. Overview of Joint Forest Management in GBAO In 2006 the SFA of GBAO, supported by GIZ, piloted JFM in the village of Barvoz (Roshtkala district) in order to improve the sustainable management of the floodplain forests. After achieving positive results in the pilot area, the SFA and two projects implemented by GIZ on behalf of the German Ministry of Economic Cooperation and Development (BMZ)1 and the German Ministry for the Environment, Nature Conservation and Nuclear Safety (BMU)2 out-scaled JFM into the districts Roshtkala and Ishkashim (since 2009) and Shugnan (since 2011). JFM is the management of forests by the SFA and local forest users. The SFA allocates forest plots to individual forest users for at least 20 years. The users sustainably manage the plot according to jointly agreed management and annual plans and give a share of their harvest to the SFA. The JFM contracts are expected to legalize and regulate the use of the forest by the local population to motivate them to protect the forest plot from illegal use by others, to manage it sustainably, and to invest into reforestation and infrastructure improvement (mainly fencing and irrigation). Local villagers managing forest plots under JFM were originally called In several regions of GBAO, contracts between the SFA and local villagers concerning the use of forest products had already been concluded before, and JFM built on such preexisting contracts. Contracts were concluded between the headquarters of the SFA of GBAO and local villagers. Field staff of the SFA are responsible for elaborating management and annual plans together with the forest users and for controlling their implementation. Map of the areas where JFM is implemented by the SFA GBAO and GIZ. 1 2 6 -2013). -2011). Taking into consideration the weak capacities of the SFA, a team of up to 10 extension workers ( ), an irrigation engineer and a Geographic Information System (GIS) expert all paid by GIZ supported the introduction of JFM by conducting information seminars and technical trainings for forest users, facilitating the allocation of plots and the conclusion of contracts, the elaboration of management and annual plans and the resolution of conflicts, planning and implementing infrastructure improvement measures from 2009 onwards. In the following years, GIZ gradually withdrew its staff from the field and shifted towards developing the capacities of the SFA staff providing an international expert for the SFA of GBAO (2010 to 2012), integrating forest users and some of its own staff into the SFA of GBAO (2012), and paying top-ups to selected office and field SFA staff (2013 to 2014). 7 3. Introduction of Joint Forest Management This chapter explains the steps of JFM introduction in a new village in GBAO. The following definitions are used in this context A forest user has leased a forest plot from the SFA under a JFM contract. One individual signs the contract but usually the whole household (or even extended family) contributes to and benefits from its implementation, with several generations supporting the work in the forest during planting and harvest season, and family members substituting for each other when one of them leaves the village to work elsewhere. following text. Local SFA staff means the foresters paid by the SFA to protect the forest and monitor the work of forest users. One forester is usually responsible for the forest areas of several villages. External extension staff means persons belonging neither to the local village population nor to the SFA but intermediating between Community representatives include staff of the municipality (jamoat) and formally elected heads of Village Organizations (VOs), as well as elders and respected village inhabitants with informal authority. 3.1. Field visit Initially, the forest area is inspected and the nearby settlements are familiarised. Local SFA staff and community representatives are involved as they can give valuable information about the history and current use of the forest. To prepare a field visit, satellite images can be used to get a first overview of the site. During the field visits the following information is collected: 8 Condition of the forest in the past: The condition of the forest before and during Soviet time may show which tree species grow well in the respective area. This information can be used when rehabilitating the forest. Condition of the forest in the present: As harvesting is a key incentive for the forest user and the SFA to participate in JFM, the forest should have enough biomass to ensure that some firewood and non-timber forest products can be harvested after one year. If this is not the case and no additional incentives can be provided, it is not recommended to conclude a JFM contract. Use of the forests in the present: It is important to know who uses the forest, how it is used (for firewood, as pasture etc.), and if there are any formal or informal rules concerning forest use. Under certain conditions, pre-existing lease contracts can be a good basis for the introduction of JFM. However, they can also have a negative effect, e.g. if the reallocation of illicitly acquired plots is resisted. Socio-economic situation of the village: This analysis should indicate - whether there are enough villagers physically capable to carry out the work in the forest, - whether the villagers dispose of time to work on the forest plots, and whether the benefits gained from JFM (financial income or subsistence firewood for the household, ecological or spiritual benefits for the village) can be expected to sufficiently motivate villagers to rehabilitate and manage the forest. Location of the forest plot: Experience has shown that it is easier for forest users to work on a nearby forest area. It is recommended to bring a given forest area completely under JFM in order to avoid overuse of remaining forest under open access. Water supply: It is important to clarify whether the forest depends on irrigation and how this irrigation can be improved (rehabilitation of old or construction of new canals). Availability of reliable and interested partners: The successful introduction of JFM depends on partners in the village (local SFA staff, village representatives, potential forest users) who understand, welcome and support the approach. If the community is split up and unable to find compromises, this will hinder an effective implementation of JFM. At the end of the field trip, the collected information is documented and enables the decision on the introduction of JFM in the respective forest area. 3.2. Information seminar If JFM is approved for a certain forest area, an information seminar is conducted (at most three or four weeks) after the field trip. External extension staff agrees upon the time and place for the information seminar with the village representatives and the local SFA staff. The information seminar includes: Evaluation of the situation of the forest. The participants of the meeting reflect on the condition and the necessary improvements of the nearby forest area Overview of JFM. The basic principles (sharing of responsibilities and benefits between forest users and SFA) and the elements of JFM (contract, management and annual plans, forest user group, and technical consultation) are outlined. Extension staff should be careful not to raise unrealistic hopes amongst external parties (international organizations, etc.). Explanation of the contract. For this purpose, a short version of the contract3 can be used, which outlines the main points in a customized manner. Explanation of access rights. Whereas forest users get long-term use rights for forest plots, the access of other households to the forest is restricted. The implications for harvesting firewood and grazing in the forest need to be discussed. Explanation of the responsibilities of the forest users. Potential forest users should understand the rights and obligations related to this role. They should realistically assess to which extent their individual household is able to perform work in the forest. Examples of forest users in other villages are presented. Realistic picture of the expected benefits. The work in the forest is not paid in cash, but forest users partially own the harvest. Potential forest users should understand that they will only be allowed to harvest if they perform their tasks. Introduction of the community agreement. The participants get acquainted with the implications of JFM for the village as a whole and with the community agreement4 to be discussed and signed. 3 See documents 01-1 and 01-2 on the CD-ROM. 4 See document 02 on the CD-ROM. 9 Discussion of open questions. Experience in the Pamirs shows that villagers often ask questions concerning grazing, irregular firewood harvesting by the SFA and inhabitants of other villages, or they request measures for infrastructure improvement. Extension staff should avoid raising unrealistic expectations. List of potential forest users: If the community already agrees on the introduction of JFM during the information seminar, a list of potential forest users can be immediately drawn up. 3.3. Community agreement As the introduction of JFM has implications not only for the official forest users but for all villagers, e.g. restricted access to firewood and grazing areas, the informed consent of the community as a whole is crucial. Extension staff should make sure that all villagers (including non-participants of the information seminar) are informed about the suggested changes in forest management, and that everybody has the opportunity to apply for a forest plot. Otherwise hidden conflicts within the community might lead to the exclusion of some households or groups of households from the allocation of forest plots. Before the contracts between the SFA and the forest users are concluded, an agreement between the community and the SFA is signed. The community agreement states that the community is willing to support JFM, and it defines the responsibilities of the SFA. The community agreement is introduced during the information seminar. Sometimes the villagers sign it already during the information seminar, sometimes they need time to discuss it, and a second meeting must be scheduled. Details of the decision-making process significantly depend on the customary law of the community, and no general rules can be given. The individual contracts should not be elaborated unless the community agreement is signed by the Chairman of the Village Organization and other community representatives. 3.4. Selection of forest users Villagers both willing and able to perform the tasks necessary to rehabilitate and manage a forest plot are selected to become forest users. After internal discussions in the village assembly and signing of the community agreement the community representatives provide a list of households interested in becoming JFM forest users to the extension staff. The selection of forest users includes four steps: Definition of the envisaged number of forest users. The community should discuss the envisaged number of forest users and negotiate it with the SFA. This depends on the size and condition of the forest area to be managed under JFM, the number of households in the village, the community structure and the allocation strategy. In GBAO, two different allocation strategies have been applied: - Many forest users and small plots: This leads to small benefits and little work in the framework of JFM for many households. It implies much work with monitoring and technical assistance for the SFA and extension staff. The conflict potential concerning forest resources in the community is reduced, as most of the households have access to forest plots. - Few forest users and big forest plots: This leads to significant benefits and much work in the framework of JFM for few households. It implies less work for the SFA and extension staff, but the conflict potential concerning forest resources in the community is increased. In some cases, the community itself suggested the selection of a few forest users considered to have outstanding experience with forest management, like former foresters or their descendants, households located close to the forest or those renowned for voluntary forest rehabilitation 10 work. They assumed that they would be most likely to restore the ecosystem functions of the forest and thereby contribute to the benefit of the whole village. Definition of criteria for selection. In GBAO, the following criteria have proved to be relevant to assess the expected performance of a potential forest user: - Physical capability: At least one member of a well-performing household is physically capable of forest work. - Time: At least one member of a well-performing household has enough time for forest work. Employment, migration and the size of owned or leased arable land influence the availability for forest work. - Experience: Experience in forestry techniques and with forest management is an asset (usually of former local SFA staff and their descendants). - Long-term planning: An individual who considers long-term benefits of the forest (timber, the short-term benefits (firewood, hay, etc.). - Motivation: A well-performing household does not exclusively think of its own benefit, but as well, of the general interest e.g. the general ecosystem functions of the forest. - State of Mind: Many of the well-performers are elder men with strong emotional ties to their village who intend to stay there. Interviews with potential forest users. Based on these criteria, a questionnaire5 is elaborated and used to interview the potential forest users included in the list provided by the community. In order to make the selection procedure transparent and acceptable to all affected households, it is recommended to have the interviews conducted by external extension staff. Selection of forest users. The selection committee is made up of a SFA representative, a community representative, and an external facilitator. The committee evaluates the answers documented in the questionnaires and selects the forest users. Each questionnaire is signed by all members of the selection committee. If a candidate is not selected, the reason is documented in the questionnaire. 3.5. Demarcation and allocation of plots The community, i.e. the village assembly, together with local SFA staff decides how to divide the forest area and how to allocate it to the selected forest users. Pre-existing formal or informal use patterns should be taken into consideration. If there are no pre-existing formal boundaries, new ones need to be demarcated. The following approaches have been applied in various villages: 5 Continuation of pre-existing demarcation. In some villages, the SFA had previously leased forest plots or allotted use rights to individual households, or individual households had fenced a forest plot and started rehabilitating it without formal use rights. In such cases, the introduction of JFM may only bring a formalization of pre-existing use patterns, and the establishment of management and planning mechanisms. See documents 03-1 and 03-2 on the CD-ROM. 11 Demarcation of plots with similar harvest potential. This may mean that plots on good forest areas are smaller, whereas plots on degraded forest areas are larger. Allocation may be done according to the preferences of the selected forest users (if consent can be achieved) or by lot. Demarcation of plots with similar features. This may mean that plots are similar in size and quality and that they include both good and degraded forest areas. Allocation may be done according to the preferences of the selected forest users (if consent can be achieved) or by lot. Forest user oriented demarcation. For example, larger plots may be allocated to those forest users who have more time for working in the forest, or more experience with forestry techniques than others. It is important that external extension staff moderates the discussion in order to ensure voice is heard. The discussion should be based on a map of the whole forest area provided by the SFA. The exact demarcation of the plots in the field is done by a representative of the SFA in the presence of the affected forest users, including those from the neighbouring plots. The SFA staff and the forest user must clearly mark the boundaries of the forest plot in the field in order to avoid later quarrels. The boundaries of the individual forest plot are recorded using GPS, and the size of the plot is measured. This information is included in the JFM contract and in the newly generated map of the forest area. Experience has shown that at the beginning of the project, the SFA of GBAO only disposed of hand-drawn maps of the forest cover from the 1980s, which were no longer up to date. Additionally, most SFA staff were not able to work with these maps. These grievances were eased by a new GIS-based documentation and mapping system based on high-resolution satellite images6. 3.6. JFM contract After the division of the forest area into individual plots and their allocation to forest users, the JFM contract7 is signed by the SFA and the forest user. The SFA staff (in the field and in the office) and the forest users can only effectively cooperate in the framework of JFM if both sides fully understand the content of the contract. Based on prior experience, the JFM contract used in GBAO includes the following points: 6 7 The size and exact location of the plot. The subdivision of the SFA responsible for monitoring the work of the forest user. The objectives of JFM. In GBAO it was considered important to focus on both forest protection and an increase of forest productivity. Rules for the elaboration and the contents of the management plan. Rules for the sharing of the harvest (percentages to be received by the SFA and the forest user in the first, second, third etc. year). Rights and obligations of the SFA and the forest user. Within the framework of management and annual plans, the forest user is allowed to independently manage the plot, while the SFA is allowed to control the use and protection of the plot. Procedures for the resolution of conflicts. The contracts in GBAO provide a three-step scheme firstly, negotiation between the conflicting parties, secondly, decision by a JFM council consisting of When high-resolution satellite images are lacking, free low-resolution images from the internet platform www.landsat.org can be used to create overview maps. See documents 04-1 and 04-2 on the CD-ROM. 12 the affected forest users, representatives of the local governmental bodies and community-based organizations, and representatives of the SFA, and thirdly, decision by the competent court8. Contract period and rules for extension. The period should be sufficiently long to give appropriate incentives for forest rehabilitation, the benefits of which will be available only in the long term. In GBAO the contracts are concluded for 20 years, with automatic extension unless the contract conditions are violated. The conditions for the cancellation of the contract and for changes in the contract. 3.7. Management plan and annual plan The five-year management plan9 and the annual plan10 serve as tools for forest management planning and for the monitoring of the . They are elaborated jointly by local SFA staff and the respective forest user for each individual plot. Ideally, planning would be based on data from a forest inventory in order to assess the biomass growth and the harvest potential. As an up-to-date forest inventory is not available for GBAO, the local SFA staff and the forest users assess the harvest potential based on their management experience. The following table shows key characteristics of both kinds of plans: Management plan Annual plan Period Five years One year Purpose Evaluation tool for the development of the Short-term planning and monitoring tool. forest plot in the mid-term. It is used as a Non-fulfilment can be a possible cause for basis for the annual plan. the cancellation of the contract. Contents Description of the condition of the forest Description of the detailed tasks of the plot forest-user over the year, indicating the location and time for each task Development of targets for the forest plot Determination of the harvest, indicating the General work necessary to reach these shares of the SFA and of the forest user targets Relation to JFM contract Forms part of the JFM contract. Does not form part of the JFM contract. Time of elaboration Elaborated after signing the contract. Elaborated together with the first management plan, and later on at the end of each year. Monitoring After five years, the plot is re-evaluated, The local SFA staff records in how far the and a new management plan is elaborated. forest user performed the tasks defined in the annual plan. At the end of the annual plan a final session of monitoring evaluates the progress o work. Based on this monitoring the potential for 8 Experience shows, however, that formal conflict resolution mechanisms are rarely used. 9 See document 05 on the CD-ROM. 10 See document 06 on the CD-ROM. 13 improvement is discussed and a new annual plan is elaborated for the following year. The templates for the management plan and the annual plan are designed in such a fashion that SFA staff and forest users can easily understand and fill in the forms. Therefore they mainly require inputs such as . Typical tasks specified in the annual plan are the construction of fences to avoid livestock grazing, digging of small irrigation channels and cleaning of existing irrigation channels, planting of trees, harvesting, pruning and felling. Regarding the harvest, the annual plan specifies the shares of the SFA and the forest user according to the percentage defined in the contract. The first management and annual plans should be elaborated with facilitation by external extension staff in order to get both sides used to a participatory elaboration process. 14 4. Implementation of Joint Forest Management This chapter explains key elements of JFM and aspects which are important in the framework of the management of forest plots under JFM. 4.1. Monitoring of the annual plans Throughout the year, local SFA staff monitor the condition of the forest plots and record whether the forest user performed the tasks defined in the annual plan. This control includes sanctions for illegal grazing and cutting. The final annual monitoring and the elaboration of the annual plan for the following year are done in autumn (October December). For this, local SFA staff and the forest user jointly complete a form to compare the actual achievements with the annual plan. The results of the monitoring are entered into the GIS database of the SFA which allows statistical analyses. The database must not be too complex, as SFA staff are expected to work with it independently. Non-fulfilment of the annual plan or the violation of the JFM contract can result in cancellation of the contract. The severity of a breach of the annual plan and an impending cancellation of the contract should be transparent to the affected forest user, and arbitrary decisions should be avoided. Therefore a multi-step warning system was introduced. It consists of the following steps: Oral warning. First written warning. Second written warning11. Cancellation of the contract12. The oral warnings are issued by local SFA staff. The written warnings are signed by the director of the SFA GBAO, the district head of the SFA and the forest user. 4.2. Technical training and assistance Taking into consideration that many forest users have no prior forestry experience, technical training and assistance is a precondition of effective management of their forest plots. This can be an important incentive to participate in JFM, especially in the beginning, when benefits from the plots are low. Technical training assistance may include: Training: SFA and extension staff support the forest users with training on planting, fencing, pruning, felling of trees and harvesting of non-timber forest products like dog rose and sea buckthorn. Such training units can be open to all villagers, who usually grow trees in their private gardens, in order to make the whole community benefit from JFM. Training material: A handbook on modern forestry techniques relevant in the Pamirs has been compiled13 and distributed to all forest users. 11 See document 07 on the CD-ROM. 12 See document 08 on the CD-ROM. 13 See documents 10-1, 10-2 and 10-3 on the CD-ROM. 15 Planting material: Planting material for the main tree species (willow, poplar and sea buckthorn) in the Pamirs is usually available from local forests. Additionally, the SFA provides the forest users with fruit tree seedlings in order make the forest plots more lucrative. Infrastructure measures: The SFA supports the implementation of selected infrastructure measures by forest users like rehabilitation, construction and maintenance of irrigation canals or dams. The support should be restricted to measures which cannot be implemented by the forest users themselves, e.g. special machinery or expensive construction material. Experience shows that infrastructure is maintained much better if the forest users have contributed workforce or funding. 4.3. Harvest and sales of forest products The harvest of different forest products from each individual forest plot is defined in the annual plan. The forest user and the SFA share it according to the shares defined in the JFM contract.14. In GBAO the system of shares is quite complex, because shares depend on the forest product and sometimes change within the period of contract duration. Additionally, the lists of shares differ from district to district because they were individually negotiated for each district at different times. It is recommended to use simpler lists when replicating JFM elsewhere. To improve the marketing of forest products and thereby increase the income from JFM for both the SFA and forest users, it is necessary to analyze the demand for different forest products and derivatives, the quantity of the different forest products which can be sustainably harvested, the quantity of the different forest products actually available for sales15. The following case study focuses on firewood, which is the main forest product on the JFM plots in GBAO. It should be harvested in spring and properly dried in order to raise its heating value. There is demand for firewood from: Public institutions (schools, municipality administrations, military bases, etc.) which receive fuel budgets from the government. Private households in JFM villages. Most of the households use firewood from their gardens, but some need additional fuel wood. They buy it from the forest users in their village or illegally cut it in the forest. Private households in the provincial capital Khorog. A significant proportion of the households still use firewood for heating and cooking. They get their firewood from private gardens, neighbours, relatives from the villages, or buy it from the villages. The development of a firewood market, on which firewood from JFM plots is legally available, is expected to prevent illegal cuttings by those who demand firewood and to provide financial incentives (income) to forest users. Fenced and roofed firewood collection points were established in several villages of GBAO with particularly large forest areas. They are located close to the main road to allow easy access to the buyers, and a specified person, e.g. a forest user or local SFA staff, is responsible for the management of the collection point. After 14 See document 11 on the CD-ROM. 15 Forest users might prefer using forest products for subsistence, and the SFA might have to deliver forest products inkind to the superior agency. 16 harvesting the firewood, the forest users bring the harvest share owed to the SFA and the sellable part of their own share to the collection point. The firewood is stored there, dried and finally sold to both public institutions and private buyers. As far as public institutions are concerned, the SFA concludes long-term sales contracts. The public institution is responsible for picking up the wood from the firewood collection points. For better planning of the harvest quantity, it is recommended to conclude these contracts as early as possible. One of the key obstacles to the development of a free firewood market is the governmentally fixed prices for firewood which are binding for the SFA. This problem has not been solved so far. 4.4. Conflict management Especially in the beginning of the implementation of JFM, when SFA staff and forest users are not yet accustomed to the new management system, conflicts are likely to occur between forest users and other villagers and between forest users and the SFA. The biggest challenges are illegal cutting and illegal grazing on JFM plots. In the following, frequently observed types of conflict and approaches to mitigation are outlined: Illegal cutting of firewood by other villagers, who are not forest users: In many cases, villagers continued the illegal cutting of firewood on forest areas to which they formerly had had open access. Conflicts can be prevented by fostering information exchange between the SFA and the forest users on one side, and the other villagers or community representatives on the other side, if necessary supported by external extension staff. In the case of conflict, reference to the community agreement can be made. It states that the whole community agreed to the implementation of JFM and that the forest users are responsible for the protection and sustainable management of their forest plots. Illegal cutting of firewood by SFA staff: Experience shows that in the beginning some local SFA staff ignored the jointly agreed annual plans and issued permits to public institutions or private buyers to cut firewood on JFM forest plots. This may be related to personal interests of the local forester or to pressure from other governmental agencies to deliver firewood quickly and in high quantities. An open dialogue between the SFA management and its local staff is necessary to foster understanding and ownership for the JFM approach on the side of local SFA staff. At the same time, the SFA management has to demonstrate its readiness and willingness to sanction any violation of JFM rules by its own staff. In GBAO, external extension staff played a crucial role in documenting violations of JFM contracts by SFA staff and bringing them to the attention of the SFA management. announced its disapproval of the violation of the contracts and made clear that it would not tolerate similar incidents in the future. Illegal grazing on JFM plots: Both the forest legislation (Forest Code, §59) and the JFM contracts forbid all grazing because it harms the newly growing shoots and is extremely detrimental to the regeneration of the forest. In many villages of GBAO, however, the local population is used to letting their livestock graze in forest areas, especially in winter and spring, when alternative pastures are not available and fodder is scarce. Whenever livestock is found grazing on a JFM plot, the SFA staff fines its owner and in case the plot has not been properly fenced also the forest user responsible for the plot. When there is a problem with the identification of the owner of the cattle, the cattle is retained until the owner comes to fetch it. If a livestock owner does not pay the fine within a month, the case is brought to court. The enforcement of a general grazing ban has proved to be difficult due to the long distances and the limited mobility of SFA staff, the unwillingness of local SFA staff to damage their social relations by fining their fellow villagers, the lack of alternative 17 pastures and the delays in the settlement of cases by the court. As a complementary measure to the grazing ban, grass or other fodder plants could be sown between the trees and harvested in autumn in order to produce a sufficient amount of winter fodder. 4.5. Forest user groups In many villages, all forest users use the same forest infrastructure for the management of their individual plots or could manage them more effectively if they cooperated. For example, they could rely on each other when constructing and maintaining the irrigation systems, save much time and work if they built a common good quality fence around the whole forest area instead of small fences around the individual forest plots, benefit from the collective marketing of forest products, especially in remote areas where access to markets is limited. Forest user groups were established in most villages of GBAO where JFM was introduced. They organize joint work to improve forest and irrigation infrastructure, the mutual monitoring of the fulfilment of annual plans, a community fine system for illegal grazing and cutting. Additionally they disseminate information about JFM within the village and solve conflicts between forest users. Furthermore the leader of a forest user group acts as an intermediary between the SFA staff and the individual forest user. Local foresters communicate information only to the leader of the forest user group who then disseminates it among its members. Some forest user groups function very well, while others do not function at all. Groups which function well have a strong and accepted leadership, and the group members recognise the advantages of cooperating in a group. Efforts are ongoing to integrate the forest user groups into the already existing Village Organizations. 18 5. Attachments The following documents related to the implementation of JFM in GBAO are available on the CD-Rom attached: No. Description of document Language 01-1 Short version of JFM contract Tajik 01-2 Short version of JFM contract Russian 02 Community agreement Russian 03-1 Questionnaire for the selection of forest-users Tajik 03-2 Questionnaire for the selection of forest-users English 04-1 JFM contract Russian 04-2 JFM contract English 05 Management plan Russian 06 Annual plan Russian 07 Warning Tajik 08 Final warning Tajik 09 Contract cancellation Tajik 10 Shares of the harvest of the forest products of the SFA and of forest users English 11-1 Handbook on forestry techniques Tajik 11-2 Handbook on forestry techniques Russian 11-3 Handbook on forestry techniques English 19 6. Abbreviations BMU German Ministry for the Environment, Nature Conservation and Nuclear Safety BMZ German Ministry of Economic Cooperation and Development JFM Joint Forest Management GBAO Gorno Badakhshan Autonomous Region GIS Geographic Information System GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit masl meters above sea level SFA State Forestry Agency TJS Tajik Somoni USD US Dollar VO Village Organization 20 7. Literature Breu, T. and Hurni 2003. Haider, J A study of forest management in a post-Soviet context: The case of Taji of Cambridge, 2012. Hoeck, T. et al. Rural energy consumption and land degradation in a post-Soviet setting an Berne Centre for Development and Environment (CDE): University of Bern, 2007. Ibele, B. et al. Linking natural resource management and climate change adaptation: Experience Kirchhoff, J.F. and Fabian A http://msrc-hub.ucentralasia.org/node/4561 (last accessed 22nd April 2014). Mislimshoeva, B Analysis of willingness to enrol in the Saving Book Approach University, 2011. http://msri-hub.ucentralasia.org/node/4642 (last accessed 22nd April 2014). Parliament of Tajikistan. Forest Code of the Republic of http://mmk.tj/ru/library/lesnoi_kodeks.zip (last accessed 22nd April 2014). Tajikistan. 2011. 21 Notes _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ _______________________________________________________________________________________ 22 Imprint Published by the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH Registered offices Bonn and Eschborn, Germany Regional Programme for Sustainable Use of Natural Resources in Central Asia 22, Erkindik Bvld. 720040 Bishkek, Kyrgyz Republic T + 996 312 90 93 40 E [email protected] I http://www.giz.de I http://www.naturalresources-centralasia.org As at May 2014 Design and layout Indika Kochkarova; Christoph Wiedemann Photo credits Behruz Ilnazarov: page 6 Gabriele Prinz: page 1 Christoph Wiedemann: page 5 Text Svenja Schuchmann; Manuchehr Fezakov; Anke Gaude; Benjamin Neusel; Aline Rosset; Klaus Vochezer Editing Julia Hettler; Christoph Wiedemann Proofreading Jan Wymer GIZ is responsible for the content of this publication. On behalf of the German Federal Ministry for Economic Cooperation and Development (BMZ) 23 24
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