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Contesting Inequality in Access to Forests

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Contesting Inequality in Access to Forests Policy thatworksforforestsandpeople5No: Zimbabwe Nhira Contesting inequality in access to forests ZIMBABWE Who you are and where you live determine whether or not you have access to forests and forest decision-making in Zimbabwe. Inequitable land distribution and anachronistic policies combine to pro- vide the wealthy with incentives for forest land management whilst the poor are ensnared in a web of Contesting Policy that contradictory regulations. The state’s control of forestry is now under challenge from alliances in the works for forests private sector and civil society. Yet, whilst local people have begun to be recognised as adept managers and people of trees, there are major political and economic tensions in devolving authority to the local institutions that might be truly motivated for good forest resource management. Contesting inequality in access to inequality forests describes the initiatives and coalitions that have turned key debates and begun to generate a more widely shared vision of the role of forests and woodlands in Zimbabwe’s development. It analyses what has and has not worked, and it sets out the ways in which vision can be turned into reality. in access Policy that works for forests and people series Forest issues often concern large amounts of money, long timeframes, huge areas of land, and diverse livelihoods. The issues are complex and vary from place to place. However, a pattern of forest problems is common to many countries: continuing loss of natural forests; over-concentrated control and inequi- to forests table access to forests; an ill-informed public; and poorly-resourced, inflexible forestry institutions. Policy is the root cause of many of these forest problems. This series consists of six country studies - from Costa Rica, Ghana, India, Pakistan, Papua New Guinea and Zimbabwe - and an overview report. The series aims at a better understanding of the forces at play in contests over policy, the winners and losers, and the factors that affect policy outcomes. It also describes the processes that make and manage good policies and the policy instruments that work in different contexts. By dealing with policy in practice - in the ‘real world’ of people and their institutions - the series aims to go beyond the frequently heard complaint that there is a lack of ‘political will’ to change, by showing how policy can change for the better. This report was financed by the UK Department for International Development (DFID) and the Ministry of Foreign Affairs, Netherlands Development Assistance (NEDA) et al Calvin Nhira Sibongile Baker Peter Gondo J. J. Mangono Crispen Marunda ISSN: 1028-8228 Figure 2.2 Zimbabwe woody cover Photo: Stephen Bass Zambezi escarpment woodland Photo: Stephen Bass Heavy soil erosion in the Kariba area; certain resettlement scheme and tsetse control operations have led to such denuded landscapes Photo: David Reed Picking cotton on a commercial farm. These farms are generally found on the better land and have enjoyed a relatively supportive agricultural policy framework. Woodlands were originally cleared to establish commercial farms, but today the farmers can generally afford to look after the remaining woodlands Photo: David Reed Winnowing soya beans. Agriculture contributes about 12 per cent of GDP and is the major source of foreign export earnings in Zimbabwe. Along with maize, wheat, fruit, coffee, sugar and cotton, soya is one of the major inputs to agro-industry Photo: David Reed A load of pine logs being received at a board and paper mill in Mutare. The relatively small wood products processing industry in Zimbabwe is dominated by the Forestry Commission and two private companies. The industry has been on the upturn since the mid 1990s, largely because of favourable exchange rates Photo: Neil Cooper/Panos Pictures Baobab tree in bare maize fields during drought, Hippo Valley, Southern Zimbabwe Photo: Heine Pedersen/Still Pictures Fuelwood, one of the products provided by trees in the landscape which are essential to household economies, especially in the communal lands Photo: David Reed Livestock have been at the core of agricultural systems in both communal and commercial lands. Commercial farmers produce beef, whilst communal land farmers are more concerned with keeping live animals for draught power, milk and manure. Trees in grazing areas are vital, and it is increasingly recognised that woodland, cattle and cultivated land are inseparable. However, disconnected policies are currently failing to foster this interconnected system Photo: David Reed A Forestry Commission tree nursery. During the 1990s centralised tree nurseries producing seedlings for afforestation programmes began to give way to more decentralised nurseries owned by individuals, local groups and NGOs. If such nurseries are based on genuine local demand, they can be more effective in promoting tree management by local people ZIMBABWE COUNTRY Policy that works for forests and people series no. 5 STUDY Contesting inequality in access to forests Authors: Calvin Nhira • Sibongile Baker • Peter Gondo • J.J. Mangono • Crispen Marunda Series Editor: James Mayers A collaboration between: Centre for Applied Social Sciences, University of Zimbabwe Forestry Commission, Zimbabwe International Institute for Environment and Development (IIED), United Kingdom 1998 Copies of this report are available from: Centre for Applied Social Sciences University of Zimbabwe, P.O. Box MP167 Mount Pleasant, Harare, Zimbabwe Tel. and Fax: +263 4 307134 e-mail: [email protected] Forestry Commission No.1 Orange Grove Drive, P.O. Box HG139 Highlands, Harare, Zimbabwe Tel: +263 4 498436-9 Fax: +263 4 497066 Publications International Institute for Environment and Development 3 Endsleigh Street, London WC1H 0DD, UK Tel: +44 171 388 2117 Fax: +44 171 388 2826 e-mail: [email protected] Citation: Nhira, C., Baker, S., Gondo, P., Mangono, J.J. and Marunda, C. 1998. Contesting Inequality in Access to Forests. Policy that works for forests and people series no. 5: Zimbabwe. Centre for Applied Social Sciences and Forestry Commission, Harare and International Institute for Environment and Development, London. Cover photo: About 70 per cent of Zimbabweans live in rural areas. Most live in the ‘communal lands’, which is poor farmland compared with the ‘commercial land’ owned by a minority of the population. In the communal lands people generally depend heavily on the natural environment for timber, food and fuel. By David Reed Design and production by Eileen Higgins at IIED. Illustration © Christine Bass: Based on patterns found in the stonework of the Great Zimbabwe ruins. Printed by Russell Press, Nottingham, UK. Printed on Highland Velvet Pro 115gsm, 100% chlorine free Policy that Works for Forests and People is a project coordinated by the Forestry and Land Use Pro- gramme of the International Institute for Environment and Development (IIED) supported by the Nether- lands Ministry of Foreign Affairs and the UK Department for International Development. The Policy that Works for Forests and People Series derives from this project. Other studies in the series to date are: no. 1 Pakistan Javed Ahmed and Fawad Mahmood no. 2 Papua New Guinea Colin Filer and Nikhil Sekhran no. 3 India Arvind Khare, Seema Bathla, S Palit, Madhu Sarin and NC Saxena no. 4 Ghana Nii Ashie Kotey, Johnny Francois, JGK Owusu, Raphael Yeboah Kojo S. Amanor, and Lawrence Antwi no. 6 Costa Rica Vicente Watson, Sonia Cervantes, Cesar Castro, Leonardo Mora, Magda Solis, Ina T. Porras and Beatriz Cornejo no. 7 Overview report James Mayers and Stephen Bass These studies are available from IIED at the address above. Views on Contesting inequality in access to forests From:Yemi Katerere Regional Director, IUCN-Regional Office for Southern Africa, formerly General Manager, Forestry Commission. This report is a significant contribution towards defining a national vision for woodland management in Zimbabwe. For too long the management of forests was considered the domain of forestry and other formal government agencies using fossilised legislation and alien administrative systems that marginalised the local communities and traditional knowledge. This explains why the State, despite access to huge financial, human and technical resources has failed to evolve sustainable woodland management approaches. Woodland resources for too long were seen as physical resources supporting a subsistence rural economy in the form of fuelwood and building material. The true value of these resources and hence their potential to contribute towards the transformation of the rural economy were grossly underestimated. This report shows clearly how the rural livelihoods are linked to woodlands and how the various government institutions have contributed to confusion over the management of the woodland resources at the local level by undermining local governance systems. The report correctly places forest/woodland management into macro- economic context. Macro-economic policies have a direct bearing on how communities perceive and utilise the woodlands. For example, the land question has a major implication of the issue of access to land and natural resources and yet it remains unresolved. The delay in implementing land re-distribution in terms of both quality and quantity can only “exacerbate the underlying causes of woodland degradation” as argued in the report. The area of policy formulation has become increasingly complex due to growing globalisation and the now widely accepted need for an Contesting
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