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Community Based Land Use Planning in the Highlands of Northern Thailand As a Means of Natural Resource Management

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Community Based Land Use Planning in the Highlands of Northern Thailand As a Means of Natural Resource Management Page 1 of 17 Community Based Land Use Planning in the Highlands of Northern Thailand as a Means of Natural Resource Management (By Oliver Puginier, PhD Student at the Humboldt University Berlin, E-mail [email protected] ) 1. Introduction This PhD study on "Community Based Land Use Planning in the Highlands of Northern Thailand as a Means of Natural Resource Management" was initiated in October 1996 and funded for three years by the Tropical Ecology Support Programme (TOEB) of GTZ. It focuses on participatory land use planning approaches in an environment in transition from swidden cultivation to permanent agriculture and includes two Thai and one German MSc projects on related topics as research accompanying the work of the TG-HDP as follows: Type of study: 1 German PhD, 1 German MSc and 2 Thai MSc studies German Institution : Humboldt Universität Berlin Landwirtschaftlich-Gärtnerische Fakultät Prof. Dr. Uwe Jens Nagel Luisenstr. 53 Tel. +49-30-2093 6510 10099 Berlin Fax. +49-30-2093 6512 e-mail: [email protected] Local Institutions : GTZ-Project „Thai German Highland Development Programme (TG-HDP) P.O. Box 67, Chiang Mai 50000, Thailand Tel. +66-53-217 637, Fax. +66-53-211 780 e-mail: [email protected] Chiang Mai University Department of Geography, Department of Education Chiang Mai 50202, Thailand Funding Period : October 1996 - September 1999 Candidates: PhD student Oliver Puginier (Humboldt University) Community Based Land Use Planning in the Highlands of Northern Thailand as a Means of Natural Resource Management" MSc student Uwe Klimkeit (Humboldt University) Socio-economic Study on the Integration of Fruit Trees for a Sustainable Farming System" 1.9.1997-31.1.1998 MSc student Rattasak Paengchata (Chiang Mai University) Application of Geographic Information Systems (GIS) to Land Use Planning in Highland Areas: A Case Study of Bor Khrai and Huai Hee Village in Mae Hong Son Province 1.12.1997-31.5.1998 MA student Tawatchai Rattanasorn (Chiang Mai University) Highland Communities Management of Eco-Tourism" 1.12.1997-31.5.1998 Project Aim: The development of a method to combine Land Use Planning (LUP) with remote sensing tools, with the full integration and participation of the local Page 2 of 17 communities in order to maintain natural resources and to safeguard sustainable, ecological farming systems. The research project was guided by the following leading questions: Can villagers manage their forests in a sustainable way under the given framework conditions? How is the participation of the villagers? What is the villager's indigenous knowledge and how can it contribute to a natural resource management? What are the villagers rules and regulations with regard to land use and how can they contribute to an improved management system? How can the results of a CLM process be monitored effectively? What is the Government’s contribution in the process and how can it be improved in a sustainable way? 2. Background The forests in the northern highlands are one of the largest remaining forest resources of the country and serve as the main watershed areas for the Chao Phaya basin, which is the most fertile and valuable farming land of Thailand. In order to assure the functioning of the watershed, and to protect and conserve the genetic resources of the flora and fauna, a large amount of the highlands have been declared as national park or wildlife sanctuary areas. Land use is prohibited in reserve forest areas according to the National Parks and Forestry Laws, and restricted in the highlands according to the national watershed classification system. Logging was banned throughout Thailand in 1989. Despite this fact the forest cover in Thailand has decreased from 53% in 1961 to 26.7% in 1993, a rather alarming trend. Since the foundation of the Royal Forest Department (RFD) in 1896 for a controlled management of the timber trade, the Thai forest policy can be divided into four main phases as described by Pragtong and Thomas (1990): 1. In phase I from 1896 to 1953 forest harvest was in the national interest and the Royal Forest Department was responsible for concessions, regulation and taxation of valuable commercial species. 2. In phase II the forest management focused on state allocation of land for economic development. Conflicting land ownership between central government and local communities began in this period and the first National Parks and wildlife sanctuaries were established. Declared reserve forest covered about 15% of the nation's land. 3. In phase III (1968-1980) the government pushed for economic development with the consequence of vanishing forests and more than 500 concession areas. Forest cover dropped to 32%, flows of migrants into reserve forests increased sharply and the cabinet authorised the issuance of long-term land use certificates for agricultural lands within reserve forests. Deforestation, occupation of forest lands, land use conflicts and environmental deterioration became major issues as time progressed. 4. In phase IV from 1980 onwards, the STK Programme (National Forest Land Allotment Programme) was initiated by the RFD, which issued land certificates to households present before 1982. The National Forest Policy of 1985 targeted the forest reserve of 40% of the national land. A watershed classification system was developed based on physical characteristics, and the STK Programme was accelerated. By 1988 vast areas of reserve forest were occupied by registered villages, with about 1.2 million households receiving services under government programmes. In 1989 commercial logging was banned. Population pressure due to immigration and population growth, as well as the higher demand for cash caused by socio-cultural changes changed the demand for land. As a result more marginal forest was encroached, fallow periods decreased, deforestation and forest degradation took place. This development causes ecological imbalances in the highlands and reduces its watershed functions. Page 3 of 17 The Government declared a large proportion of the highland area as reserve forest land in 1964 with the consequence, that many settlements became illegal. The watershed classification and other forest protection aims did not reflect the real situation of existing communities. The reserve forests were only classified by using the physical structure of the area, but ignoring the people there. Thai people, who got land use rights through the Government policy, already inhabited the good locations in the lowlands. Thus the highlanders had to stay in illegal settlements or they even moved to more remote areas to escape from law enforcement actions. In mountainous areas the ethnic minorities had no legal status in Thai society, and claims to land under shifting cultivation and forest fallow were difficult to fit under lowland Thai legislation (Pragtong and Thomas, 1990). This situation has still not changed. A result of this situation is the increasing land use conflicts. According to the National Park and Forestry Laws, land use is still prohibited in reserve forest areas and watershed classification systems. Watershed classification maps show that most of the highland area falls under watershed class 1, which does not allow any settlement or agricultural production (Kemp, 1981). The new (yet pending ratification by Parliament) Thai Forest Sector Master Plan of 1994 admits that the past approach to forestry has failed and is now focusing on a more participatory forest management with local people as partners (Thai Forestry Sector Master Plan 1994, Vol. 2, pp 2-3), and it is also trying to encourage more participatory approaches (Poffenberger and McGean, 1993). But at the same time relocation is still a policy in protected areas, and land ownership, land use rights or legal logging are far beyond reality for the Hilltribe people, as the old laws and regulations still exist. This clearly shows the contradicting and sometimes helpless policy that exists at the moment and which puts Government officials into a state of uncertainty. One of the factors affecting highland development is the legal status of the inhabitants from ethnic minorities. The two main ministries involved are Interior, particularly the Department of Local Administration (DOLA), and Agriculture and Cooperatives, particularly the Royal Forest Department (RFD). The criteria for legal settlement used by these ministries in many cases do not match and lead to contradictory situations. Essentially, the aim of DOLA is to progressively encompass all villages into the Thai administrative framework. This has involved encouraging small settlements (of less than 10 households) to join larger nearby villages and a progressive upgrading of satellite villages (those administratively dependent on a core official village) to core or key village status with its own village headman. As the number of official villages has increased, so new tambons (sub-districts) have been created, and as in the case with Pang Ma Pha, groups of tambons have been formed first into a new branch district, which has subsequently been upgraded to full district status. Such administrative changes have been accompanied by the establishment of district offices for most of the main government agencies, a hospital, secondary school and the upgrading of infrastructural facilities such as roads and electricity supply. However, as these expansions in legal recognition have occurred on one hand, the land status according to forestry regulations has remained unchanged. In the case of Pang Ma Pha district, little "islands" containing the main town of Sobpong and various administrative units have been created within the area designated as the Pai Wildlife Sanctuary. 3. Research Areas The highlands of northern Thailand face a rapidly increasing change process from different types of shifting cultivation to permanent agriculture, accompanied by a progressive integration of approximately 800,000 highlanders (NSC/NESDB, 1993) of different ethnic origin into mainstream Thai society. In the past, these very extensive farming systems were well adapted to highland conditions, when population density was low and available land for shifting cultivation was still abundant in the forest.
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