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Forestry 2030 Roadmap (Forestry Strategy 2009-2030)

This roadmap is a living document, which will be reviewed when significant success has been made in achieving the key milestones identified herein and or upon request by stakeholders. PREFACE

The Department of Agriculture, Forestry and Fisheries is the custodian of ’s forestry resources. The goal of the Department is to ensure that the forest resources remains fit for recognised uses and that the viability of ecosystems is maintained and protected. This is achieved through the involvement of role players from several tiers of government, from the private sector and from civil society.

The sector has made strides in many respects, notably the Forest Stewardship Council (FSC) certification of three Southern Cape natural forest estates which was granted in 2002, the signing of the Forest Sector Transformation Charter in 2008 which brings about opportunities for growth in the sector and a shift in resource distribution and provision of oversight for management of forests by government; the inclusion of forestry as key sector in the Provincial Growth and Development Strategy for and ; development of National Forestry Type Classification System; Protected Tree and Champion Tree lists; urban greening including the Million Trees Programme and a National Fire Danger Rating System.

However, despite the above mentioned achievements, the sector has experienced a number of challenges which hindered the sector from realising its potential contribution to job and wealth creation as well as conservation of biological diversity. The formulation of a document with a long-term policy and strategy for the development of the South African Forestry imposes a primary objective. The roadmap should reflect all contemporary trends of the world forestry. At the same time, it should give ways or methods for solution of the numerous challenges in the South African forestry in correlation with the demands of the sector, as well as with its significance for the sustainable development. In response to the need, the Department of Agriculture, Forestry and Fisheries has development forestry roadmap. The process is based on world-recognized principles, inputs from local and international experts as well as all relevant stakeholder groups and society as a whole. It sets the stage for all major decisions concerning the forest sector in South Africa for the next 20 years.

The process that was followed included the wide variety of organisations and individuals in the development of this roadmap ensured the acceptance and the use of this roadmap by all significant role players, as the Forestry 2030 Roadmap.

The Department recognises that this roadmap is not static and will therefore update and modify it on a regular basis, as determined by ongoing research and review of local and international information on the effects sustainable management and use of these resources. The process of developing Forestry 2030 Roadmap, and the involvement of key role players, is a continuing one.

Finally, I wish to express my sincere appreciation to all those whohave been involved in the development of this roadmap. I also look forward to their continued involvement in maintaining one of the corner-stones of the sustainable forestry management in South Africa.

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MS T. JOEMAT-PETTERSSON, MP DATE

MINISTER OF AGRICULTURE, FORESTRY AND FISHERIES TABLE OF CONTENTS

PREFACE ...... i LIST OF ACRONYMS AND ABBREVIATIONS...... iv EXECUTIVE SUMMARY ...... 1 PART ONE: THE PRESENT FORESTRY SECTOR...... 2 1. INTRODUCTION ...... 2 2. ENVIRONMENTAL, SOCIAL AND ECONOMIC CONTEXT...... 3 2.1 FOREST RESOURCE BASE AND EXTENT OF FORESTRY IN THE COUNTRY...... 3 2.1.1 WOODLANDS...... 3 2.1.2 NATURAL FORESTS...... 4 2.1.3. COMMERCIAL PLANTATIONS...... 4 2.2 FORESTRY’S CONTRIBUTION TO SUSTAINABLE DEVELOPMENT ...... 6 2.2.1 ENVIRONMENTAL SUSTAINABILITY...... 6 2.2.2 SOCIAL SUSTAINABILITY...... 7 2.2.2.1 Supply of basic needs...... 7 2.2.2.2 Saving of cash resources...... 7 2.2.2.3 Safety-net function of forest goods ...... 7 2.2.2.4 Medicinal plants...... 8 2.2.2.5 Safeguarding subsistence use...... 8 2.2.3 ECONOMIC SUSTAINABILITY...... 8 2.2.3.1 Plantation forestry...... 9 2.2.3.2 Sawmilling...... 9 2.2.3.3 Manufactured timber...... 10 2.2.3.4 Pole production...... 10 2.2.3.5 Charcoal...... 10 2.2.3.6 Honey...... 10 3. LEGISLATIVE AND POLICY FRAMEWORK...... 10 3.1 THE CONSTITUTION OF THE REPUBLIC OF SOUTH AFRICA, 1996...... 10 3.2 WHITE PAPER ON SUSTAINABLE FOREST DEVELOPMENT IN SOUTH AFRICA...... 11 3.3 NATIONAL FORESTS ACT, 1998 (ACT NO 84 OF 1998)...... 11 3.4 NATIONAL VELD AND FOREST FIRE ACT, 1998 (ACT NO 101 OF 1998)...... 11 3.4.1 NATIONAL VELD AND FOREST ...... 11 3.5 OTHER LEGISLATION IMPACTING THE FORESTRY SECTOR...... 12 3.5.1 NATIONAL WATER ACT, 1998 (ACT NO 36 OF 1998) ...... 12 3.5.2 ENVIRONMENTAL LEGISLATION ...... 12 3.5.3 AGRICULTURAL LEGISLATION ...... 12 3.5.4 LAND LEGISLATION ...... 13 3.5.5 LABOUR LEGISLATION...... 13 3.6 FOREST SECTOR BBBEE CHARTER ...... 13 3.7 ASGI-SA AND THE NATIONAL INDUSTRIAL POLICY FRAMEWORK...... 14 3.8 INTERNATIONAL POLICY FRAMEWORK AND CO-OPERATION ...... 14 PART TWO: FORESTRY SECTOR CHALLENGES...... 15 4. KEY CONSTRAINTS TO FORESTRY GROWTH...... 15 4.1 CHALLENGE 1: LAND REFORM ...... 15 4.1.1 POST SETTLEMENT SUPPORT TO COMMUNITIES/ COMMUNITY READINESS ...... 15 4.1.2 TRANSFER TO COMMUNITIES AND COMMERCIALISATION OF STATE ASSETS... 16 4.2 CHALLENGE 2: RAISING THE PROFILE OF THE FORESTRY SECTOR...... 16 4.3 CHALLENGE 3: TIMBER SHORTAGE IN THE COUNTRY...... 16 4.4 CHALLENGE 4: ACCESS TO FUNDING...... 17 4.5 CHALLENGE 5: SKILLS SHORTAGE IN FORESTRY SECTOR...... 17 4.6 CHALLENGE 6: RESEARCH DEVELOPMENT AND INNOVATION ...... 17 4.7 CHALLENGE 7: CLIMATE CHANGE ...... 18 4.8 CHALLENGE 8: FORESTRY PROTECTION ...... 18 4.9 CHALLENGE 9: FORESTRY AND REGULATORY ENVIRONMENT...... 18 4.10 CHALLENGE 10: MONITORING AND EVALUATION...... 19 PART THREE : THE FUTURE FORESTRY SECTOR...... 20 5. NATIONAL FORESTRY ROADMAP...... 20 5.1 PROBLEM STATEMENT...... 20 5.2 VISION ...... 20 5.3 MISSION ...... 20 5.4 PRINCIPLES ...... 20 5.5 POLICY CONTEXT...... 21 5.6 STRATEGIC OBJECTIVES ...... 21 5.7 FORESTRY ROAD MAP ...... 22 6. RESOURCING THE ROADMAP...... 25 7. MONITORING, REPORTING AND REVIEW...... 25 REFERENCES ...... 26 ANNEXURE A: DISTRIBUTION OF FORESTRY RESOURCES IN SOUTH AFRICA...... 27 ANNEXURE B: ANNUAL PLAN OF IMPLEMENTATION...... 32 TABLES Table 1: Plantation area by species/ownership...... 5 Table 2: Plantation area by province/ownership...... 5 Table 3: Economic opportunities based on forest resources...... 8 Table 4: Long Term Demand and Supply Scenario (Source: Forestry South Africa, 2007)...... 17 FIGURES Figure 1: Forest Stewardship Certified Forests by Ownership...... 4 Figure 2: Land Use comparisons in South Africa in different years...... 19 LIST OF ACRONYMS AND ABBREVIATIONS ASGI-SA Accelerated Shared Growth Initiative of South Africa ARC Agricultural Research Council BBBEE Broad Based Black Economic Empowerment CAs Conservation Authorities C & I Criteria, Indicators and Measures CDM Clean Development Mechanism CSIR Centre for Scientific and Industrial Research DAFF Department of Agriculture, Forestry and Fisheries DEAT Department of Environmental Affairs and Tourism DFA Department of Foreign Affairs DIRC Department of International Relations and Cooperation DIY Do It Yourself DLA Department of Land Affairs DoA Department of Agriculture DPE Department of Public Enterprise DRDLR Department of Rural Development and Land Reform DST Department of Science and Technology DTI Department of Trade and Industry DWAF Department of Water Affairs and Forestry DWEA Department of Water and Environmental Affairs FABI Forestry and Agriculture Biotechnology Institute FIETA Forest Industries Education and Training Authority FMU Forest Management Unit FSC Forest Stewardship Council GDP Gross Domestic Product Insts Institutions KZN KwaZulu-Natal NEPAD New Partnership for Africa’s Development NIPF National Industrial Policy Framework

NFA National Forests Act PROV Provincial Government R & D Research and Development SADC Southern African Development Community SFRA Stream Flow Reduction Activity SME Small and Medium Enterprise UNFCCC United Nations Framework Convention on Climate Change EXECUTIVE SUMMARY

The Department of Agriculture, Forestry and Fisheries, as a custodian of forestry resources in South Africa, is responsible for the promotion of the sustainable management of the country’s forest resources for the benefit of the nation. The National Forests Act, 1998 (Act No 84 of 1998) promotes sustainable forest management based on the principles of sustainable development and therefore ensures the integration of ecological, social and economic values, in consultation with local communities and other stakeholders.

The forestry resource base, i.e. natural (indigenous) forests, commercial plantations and woodlands, is spread over some of the poorest areas in South Africa and therefore plays a significant role in terms of poverty eradication, through job creation, supply of basic needs and acting as a safety-net.

The commercial forestry sector is globally competitive, but it is not adequately transformed and operates within a highly regulated environment which is currently affecting its ability to reach its full potential.

The conclusion and signing of the Forest Sector Transformation Charter and the recognition of forestry as one of the potential growth sectors in South Africa by the Department of Trade and Industry have created a need for strong partnerships between Government and other stakeholders, including industry with a view to sustainably grow and transform the forestry sector.

In order to benefit from these opportunities, the Department together with its stakeholders developed a strategy document that maps the path the sector will embark on over the next 20 years to realise its potential to contribute to government objectives.

The document reflects on the current policy and legislative framework that provide the mandate for the The Department of Agriculture, Forestry and Fisherie in relation to Forestry; highlight key challenges that impede the growth and transformation of the sector; and present strategic interventions to be taken by the Department and the industry to realise the sectors potential to contribute to sustainable development.

The Roadmap reflects the new vision for the forestry sector, principles and eight strategic objectives as well as targets and actions to achieve these objectives. In summary, the strategic objectives cover the expansion of the forest estate; improvement of quality of life through forestry; conservation of forest biological diversity; improvement of skills, awareness raising and information sharing; enhanced and streamlined regulatory environment; securing timber supply; institutional and financial arrangements; establishment of a knowledge-based forest enterprise; and international relations.

1 PART ONE: THE PRESENT FORESTRY SECTOR 1. Introduction

Following the democratic dispensation in 1994, South Africa underwent a rigorous law reform process in various sectors. This law reform was informed by a series of White Papers and similar policies. Within the forestry sector, in 1996, a White Paper on Sustainable Forest Development in South Africa was adopted. That policy document set various goals that had to be achieved within a five year period.

Developments within the forestry sector have necessitated a stocktaking exercise with a view to review the relevance of policies which were adopted in that era. Following the adoption of the White Paper, a series of legislative and other policy documents to effect the provisions of the White Paper have been developed and implemented. The above mentioned developments include the development of the forest legislation namely National Forests Act, 1998 (Act No 84 of 1998); National Veld and Forest Fire Act, 1998 (Act No 101 of 1998); Forest Laws Amendment Act, 2005 (Act No 35 of 2005) and National Forest and Fire Amendment Act, 2001 (Act No 12 of 2001). Furthermore, the adoption of growth related policies by government, i.e. the Accelerated and Shared Growth Initiative - South Africa (ASGI–SA) and the National Industrial Policy Framework, identified forestry as a sector with growth potential and Industrial Policy Action Plans were developed for the forestry, pulp and paper and furniture sector.

The National Climate Change Response Strategy for South Africa (September 2007) developed by the Department of Environmental Affairs and Tourism, cites South African forests as sensitive to climatic change. The deliberations within the United Nations Framework Convention on Climate Change (UNFCCC) present opportunities for sustainable forest management, particularly in respect of mitigation effects. The strategy also advocates facilitation of establishment and extension of forest schemes as a contribution to the implementation of a proposed national greenhouse gas mitigation plan that furthers the process of sustainable development in South Africa in light of the Cleaner Development Mechanism, technology transfer, donor funding and capacity building opportunities. The impact of climate change on the forestry sector also requires adaptation to avoid some predictable risks, especially relating to risks of increase in frequency and intensity of fires, droughts, pest and disease and geographic shifts in optimal growing conditions.

The sector has made strides in many respects, notably the Forest Stewardship Council (FSC) certification of three Southern Cape natural forest estates which was granted in 2002; the signing of the Forest Sector Transformation Charter in 2008 which brings about opportunities for growth in the sector and a shift in resource distribution and provision of oversight for management of forests by government; the inclusion of forestry as a key sector in the Provincial Growth and Development Strategy for Limpopo and the Eastern Cape; disposal or transfer of State Forests; development of afforestation strategy for Eastern Cape; development of National Forest Type Classification System, Protected Tree and Champion Tree lists; urban greening including the Million Trees programme; establishment of the National Forest Advisory Council; protected area planning for natural forests; and the development of a National Fire Danger Rating System.

However, despite the above mentioned achievements, the sector has experienced a number of challenges which hindered the sector from realising its potential contribution to job and wealth creation as well as conservation of biological diversity. The challenges range from inadequate supply of raw materials; biased equity distribution in the value chain; non-optimal contribution to poverty alleviation and economic development; and slow afforestation uptake to cumbersome licensing processes within government. These challenges threaten long term sustainability of the sector and need to be addressed with a sense of urgency.

2 As forestry continues to be one of the important sectors in South Africa, contributing both to the economy of the country, employment and improvement of livelihoods, the Department needs to examine its dual mandate of conservation and promotion of forestry as one of the crucial industries in South Africa, particularly in the light of the fact that the Draft National Protected Areas Strategy developed by the Department of Environmental Affairs and Tourism identifies the forest biome as one of the significantly conserved biomes, except for specific forest types.

This will assist in the equitable distribution of financial and human resources within the programmes, while ensuring that natural forests are conserved, protected and managed efficiently.

It is against this backdrop that the Department in consultation with its key stakeholders has developed a strategy document which will serve as a roadmap for the sustainable development and management of all forestry resources in a manner that will benefit all South African while maintaining the integrity and viability of natural forests as important ecosystems deserving of protection for future generations.

2. Environmental, Social and Economic Context

2.1 Forest Resource Base and Extent of Forestry in the Country

The forest resources of South Africa consist of three main types, namely: woodlands, natural forests and commercial plantations (Annexure A).

2.1.1 Woodlands

Woodlands cover the bulk of the forests land in the country covering approximately 29-42 million hectares, depending on the classification system used. This is about one third of South Africa’s total land area and about 5.7 million hectares of woodlands are in protected areas. The main land uses in woodland areas are livestock farming and conservation by means of national parks. The most important product harvested from woodlands is firewood. Exploitation of woodland timber on a commercial scale is confined to the craft industry for carving and for furniture products. A variety of plants is traditionally harvested for medicinal, food and domestic purposes.

The importance of woodlands as a resource, especially in relation to poverty, is illustrated by the fact that:

»» 27 million people rely on medicinal plants for health care; 65% of the plants used for this purpose are forest or woodland species. »» Between 9 and 12 million people use fuelwood, wild fruits and wooden utensils obtained from forests and woodlands. »» Each year, the average rural household uses 5.3 tonnes of firewood, 104 kg of wild fruits, 185 large poles for fences and construction, and 58 kg of wild spinaches – most of which is sourced from woodlands. »» The direct-use value of woodland resources consumed each year is at least R8 billion. »» Access to woodland resources contributes between 20% and 25% of total livelihood accruals. »» If these goods were not available, the benefits they provide would have to be provided by the State in order to stem the tide of rural poverty. »» Approximately 800 000 people operate in the craft industry, which is heavily reliant on woodland resources. »» Up to 100 000 households in South Africa engage in small-scale trade in forest products from woodlands.

Woodlands are increasingly under threat, and it is vital that appropriate measures be implemented to ensure sustainable woodland management.

3 2.1.2 Natural Forests

Natural forests cover a relatively smaller area of 492 700 ha. This is less than 0.4% of South Africa land area, but these forests have the highest biodiversity per unit area (0.418 species/ha). Almost three quarters of these are conserved either as declared State forests or within formal protected areas.

South African natural forests can be classified into seven forest groups, further subdivided into 20 forest types and 4 azonal forest types. The Eastern Cape has the largest share (46%); KwaZulu-Natal has 29%; 13%; 7% and Limpopo 5%. However, the Eastern Cape has only 4.75% of its area under protected status.

2.1.3 Commercial plantations

Commercial plantations cover approximately 1.26 million ha of the country and over 80% of them occur in the three provinces of Mpumalanga, KwaZulu-Natal and the Eastern Cape. Approximately 68% of the area covered by plantation estates in South Africa is planted with exotic tree species. The balance of these estates contains natural vegetation, including natural forests that have to be protected. The applicable mechanisms for the protection of such natural forests are Forest Management Unit (FMU) forest protection plans. All commercial plantations in South Africa which have achieved FSC certification (82% of all plantation estates) do have FMU plans. This means that currently sustainable plantation management is practiced on at least 82% of the total area. This is the highest percentage of certified plantations in the world. The figure below shows the Forest Stewardship Council certified plantations by ownership (Figure 1):

Figure 1: Forest Stewardship Certified Forests by Ownership

2.2% 21.8%

13.0% 63.0%

FSC certified forests by ownership: October 2007 Source: Department of Water Affairs and Forestry, 2008

Most of the State’s larger plantations have been leased and the remaining smaller plantations (about 61 183. 4 ha) are still managed by government.

Although forests constitute a relatively small percentage of the total land area of South Africa, the forestry sector contributes R22 billion per annum to the Gross Domestic Product. The commercial plantations produce more than 22 million cubic meters of round wood worth an estimated R5.1 billion annually. The sector is also a net exporter of goods and the exports of forest products amount to R12.2 billion per annum, whereas imports total R9.8 billion.

4 The constitution, composition and distribution of these commercial plantations are shown in the tables 1 and 2

There is a rapid development of black ownership and management in the form of out grower timber schemes. Out grower timber schemes are community-based plantations, normally in the form of small woodlots occurring in patches operated by private companies such as Mondi, Sappi and the SA Wattle Growers Union. Most of these are sustainably managed as the Chain of Custody principle of the Forest Stewardship Council (FSC) ensures that the large buyers of timber from small growers are obliged to buy from sustainably managed forest operations.

Table 1: Plantation area by species/ownership

Ownership 2006/07 Percent Percent Private Public Total Species Privately Publicly Hectares Owned Owned Softwood 513 587 163 492 677 079 75.9% 24.1% E. grandis 234 920 34 274 269 193 87.3% 12.7% Other Gum 197 391 11 121 208 511 94.7% 5.3% Wattle 98 912 4 106 103 018 96.0% 4,0% Other 6 414 1 979 8 393 76.4% 23.6% Total 1 051 223 214 971 1 266 194 83,0% 17.0%

Table 2: Plantation area by province/ownership

Ownership 2006/07 Percent Percent Private Public Total Province Privately Publicly Hectares Owned Owned Limpopo 25 403 22 693 48 096 52.8% 47.2% Mpumalanga 386 533 128 297 514 830 75.1% 24.9% NW Province 0 126 101 0,0% 100.0% 0 0 0 0,0% 0,0% 0 0 0 0,0% 0,0% KZN 454 721 32 245 486 966 93.4% 6.6% E Cape 124 030 31 049 155 079 80.0% 20.0% N Cape 0 0 0 0,0% 0,0% W Cape 60 535 562 61 097 99.1% 0.9% Total R.S.A 1 051 222 214 972 1 266 194 83,0% 17,0%

Source: Department of Water Affairs and Forestry, 2008

5 2.2 FORESTRY’S CONTRIBUTION TO SUSTAINABLE DEVELOPMENT

Sustainable development ties together concern for the carrying capacity of natural systems with the social challenges facing humanity. As early as the 1970s “sustainability” was employed to describe an economy “in equilibrium with basic ecological support systems”. The field of sustainable development can be conceptually broken into three constituent parts, i.e. environmental sustainability, economic sustainability and sociopolitical sustainability. Agenda 21 emphasises that broad public participation in decision making is a fundamental prerequisite for achieving sustainable development. It means resolving the conflict between the various competing goals, and involves the simultaneous pursuit of economic prosperity, environmental quality and social equity famously known as three dimensions (triple bottom line). It is a continually evolving process; the ‘journey’ (the process of achieving sustainability) is of course vitally important, but only as a means of getting to the destination (the desired future state).

Sustainable Forest Management is the management of forests according to the principles of sustainable development. The National Forests Act, 1998 (Act No 84 of 1998) promotes sustainable forest management and therefore ensures the integration of ecological, social and economic values, in consultation with local communities and other stakeholders.

2.2.1 ENVIRONMENTAL SUSTAINABILITY

South Africa is rated third among the countries in the world richest in biological diversity (mega diverse countries). A substantial portion of this biodiversity is represented by species occurring in forests and woodlands (including thickets) and the diversity of plant communities within these biomes. The Forest biome has the greatest plant species diversity per unit area of all biomes in the country and therefore plays a substantial role in contributing towards national conservation targets. The conservation planning process that aims at conserving key natural forests, thickets and woodlands is still in its early stages and will have to be advanced during the next five years through national scale mapping of the woodlands (including thickets) and through generating primary data on their biological diversity that would support quantitative decision models for the determination of conservation priorities and targets.

This served as input into the National Protected Areas Expansion Strategy. Conservation of natural biodiversity is a competency that is shared among different spheres of Government and thus requires co-operation and co-ordination among different Government Departments.

There is limited information on the ecosystem services value attached to South Africa’s forests and where some estimates have been made, they have not apportioned what fraction of the benefits is captured exclusively or primarily by rural communities and what proportion by society at large. However, such services are of importance to the rural poor, in part as the related costs are borne disproportionately by such people. Society at large can however benefit from the role forests play in climate change. Climate change is emerging as perhaps the greatest environmental challenge of the twenty- first century and forests are important in terms of their potential to absorb carbon emissions. Forests are however also sensitive to climate change and therefore the forestry sector will focus on maximising mitigation potential, although the forest resource base is small, and ensure adaptation options are developed to enable the sector to respond to climate change.

Commercial forestry and water yield is a significant issue in a dry country like South Africa. Commercial forest plantations cover 1.1 percent of the total area of South Africa, but reduce the total mean annual stream flow by about 2.7 percent. Pulp and paper mills are the largest users of water (± 250 million m³ per annum) among the forest industry processing plants and also produce the largest volume of waste. Generally, plantation forestry tends to have positive effects on water quality by reducing surface run-off, evaporation and loss of topsoil, when well managed. However, poor management of certain forest operations (e.g. road construction, timber extraction and site preparation) can result in large qualities of suspended sediment being discharged into river systems. Plantation fires, although infrequent, can also result in the release of sediments to streams raising sediment yields by up to 20 times.

6 2.2.2 SOCIAL SUSTAINABILITY

As in other countries, the very poorest have to rely on the collection of a wide range of items growing in the wild simply in order to survive. These forest goods provide three types of benefit, namely: (i) the supply of basic needs, (ii) a saving of cash resources, and (iii) a buffer or safety-net during times of misfortune. The draft key issue paper on forestry and poverty in South Africa, 2005 summaries the above mentions benefits as follows:

2.2.2.1 Supply of basic needs

The supply of basic needs is a function that forest resources play for a large number of poor people. Firewood, building poles, medicinal plants, and edible fruits are all critical to the livelihood of the rural poor. Over 80 percent of rural households use fuel wood as their primary source of energy. Nearly all of this, some 13 million m3 annually, is taken from savannas, indigenous forests and plantation off-cuts. This fuel wood use has a gross national value of approximately R3 billion annually, or just under R2 000 per using household per year. The unsustainable use of fuel wood resources is therefore a threat not only to the resource base, but also to rural livelihoods. With a predicted 1.5 million rural households remaining without electrical supply for the next twenty years a continuing reliance on fuel wood can be expected.

Primary health care for the poor is also heavily dependent on forest resources. The 28 million people who use traditional plant medicine in South Africa depend on their continuing supply. Over 65 percent of the plant material in urban markets is forest or savanna species and the most favoured species come from forests. Approximately one-third of medicinal plant material is tree bark. Forests also make an important contribution to the nutritional well-being of many poor people, with edible fruit and other forest foods being important sources of nutrition at various times of the year. User households extract considerable volumes of these forest resources on an annual basis. There are also clear indications that it is the poorer and more isolated communities, as well as households that are less well off or headed by women, which are more dependent on these resources.

2.2.2.2 Saving of cash resources

Forest resources play an important role in enabling the rural poor to save scarce cash resources, which may then be used for other household needs. Being able to collect such resources to meet daily needs for energy, shelter, medicine and food allows scarce cash resources to be used to secure other household needs, as well as helping to accumulate the necessary asset base for a more secure livelihood. This includes the education of children, investment in agricultural tools, and capital for income generation activities. It is estimated that such cash saving amounts to several thousands of Rand per household per year. The magnitude of this saving is greater to poorer households than wealthier households simply by virtue of the reduced total income sources and sizes for poor households. This cash saving also has benefits at the national level, as government would incur some of these costs were it necessary to provide these services in rural areas.

2.2.2.3 Safety-net function of forest goods

The safety-net function of forest goods refers to the role they play in assisting households cope in times of adversity. Events such as death, disability or the retrenchment of a member of the household, as well as natural disasters, the need to pay annual school fees, or unanticipated and large increases in the cost of staple foods and goods, can stretch families beyond their normal capacity to cope. During such times many rural households turn to forest resources to tide them over what they perceive is a temporary setback. Because the safety-net function of forest resources as temporally variable, there is little information regarding the prevalence of this activity throughout rural communities. But there is no doubt it is widespread. Many small-scale vendors of forest resources recount that the initial impetuous for them taking to selling was some household hardship, especially for those with limited or no education.

7 2.2.2.4 Medicinal plants

Medicinal plants will continue to underpin the health care system of South Africa for a number of years. The huge scale of consumption dictates that this is a sub-sector that cannot be ignored, despite poor prospects for growth. A reduced reliance on the dwindling stocks of wild plants and the development of reliable, commercially cultivated stocks will help to secure the supply of raw materials. However, the prospects for the harvesters of wild plants appear bleak unless non- traditional sources of supply (e.g. protected areas and private lands) can be accessed.

2.2.2.5 Safeguarding subsistence use

By definition, the subsistence use of forest products does not offer any prospect for the rural poor to escape poverty. However, until such time that alternative ways out of poverty can be found these products will continue to serve an important safety net function for many poor people, thus contributing to the objective of poverty alleviation. The greatest challenge facing the country in this regard is balancing the need for poverty alleviation with forest conservation so as to ensure a sustainable supply of forest products for subsistence use. Without the continuing supply of firewood, construction poles, medicinal plants and forest foods the existing hardships borne by the poor will undoubtedly increase. Unfortunately, much of this use remains hidden from the national economy, as the necessary statistics to demonstrate their importance in the rural economy are not collected in any systematic way.

2.2.3 ECONOMIC SUSTAINABILITY

The forest resources of South Africa represent a considerable natural asset for economic growth, based upon both enterprise and employment opportunities. Although forests constitute a relatively small percentage of the total land area of South Africa, the forestry sector contributes R 22 billion per annum to the Gross Domestic Product. The commercial plantations produce more than 22 million cubic meters of roundwood worth an estimated R 5.1 billion annually.

The sector is also a net exporter of goods and the exports of forest products amount to R 12.2 billion per annum whereas imports total R 9.8 billion. At the same time, significant constraints on the poor benefiting from forestry have been noted. If these were diminished there is the prospect that significant gains in national poverty reduction could be achieved. It is important to recognise that these forest resources are not uniform and therefore there is considerable differentiation within the sector. To explore further the potential opportunities for the poor a closer look is required. Table 3 below summarizes some of the more important facts and figures.

Table 3: Economic opportunities based on forest (Adapted on key issue paper on Forestry & Poverty in South Africa, 2005)

Sub-sector Economic context Growth prospects Regions

170 000 direct jobs in forest & forest Current supply just meeting product industry KZN, EC, Commercial demand WC, Limpopo, plantations Large number of new jobs could be Mpumalanga GDP growth will increase demand created 28 million consumers nationally Declining due to supply 200 000 traditional health Medicinal restrictions practitioners All plants But vast national demand exists 16 000 harvesters gathering wild plants in KZN

8 Sub-sector Economic context Growth prospects Regions

30 000 employees in existing sawmills Limited growth in demand Large and projected KZN, EC, small-scale Large sawmills – employment WC, Limpopo, DWAF remaining plantations Mpumalanga Sawmilling Small sawmills – ownership for new represent a significant resource entrants Established sector with some niche opportunities Small growth prospects in Manufactured furniture components, DIY All timber products 900 furniture manufacturers in SA products, packaging products and timber grading No estimate of employees available Rural employment and ownership opportunities Good growth prospects, based KZN, EC, Pole production on existing DWAF Cat. B & C WC, Limpopo, 150 pole treatment plants operating plantations Mpumalanga in SA Industrial and retail demand strong Charcoal 6 000 employees in charcoal industry All Joint venture projects under development KZN, EC, Honey Good – current national demand 2 400 bee farmers WC, Limpopo, production exceeds supply Mpumalanga

2.2.3.1 Plantation forestry Plantation forestry offers considerable promise for growth. Recent projections of future demand for round wood have indicated a considerable expansion of the existing plantation estate is required if South Africa is to remain self-sufficient in round wood, and make a significant contribution to foreign exchange earnings. The Department developed the Forest Sector Transformation and Growth Charter as such a tool. There are opportunities for new afforestation over an area of up to 100 000 hectares, mostly in the provinces of the Eastern Cape. Such an expansion in the plantation area would provide considerable economic benefits, including the creation of many new jobs. This represents a possible opportunity for rural employment and economic growth in the more disadvantaged parts of South Africa, such as the Eastern Cape. The South African forestry industry already displays a strong comparative advantage in plantation management and has considerable experience of partnerships between large commercial companies and small-scale tree growers.

2.2.3.2 Sawmilling Sawmilling provides scope for black economic empowerment and participation by the poor. In the large-scale sawmilling sector opportunities exist to increase the participation of small contractors in the transport and distribution of sawmill products. In the small-scale sawmilling industry it is estimated that previously disadvantaged people own more than 80 percent of all sawmill operations. Most of the employees, including a large percentage of women, are from poor rural communities. However, the future development of these small-scale mills will depend to a large degree on securing log supplies. In this context, the on-going restructuring process for DAFF Category B and C plantations represents an opportunity to meet this need.

9 2.2.3.3 Manufactured timber

Manufactured timber products offer modest prospects for growth, particularly in filling niche markets. Those product categories that are less volume-sensitive offer the most potential. There are opportunities for the supply of components (e.g. turnings), laminated boards and pre-specified board sizes to existing furniture manufacturers. A similar opportunity exists for the supply of DIY products to wholesale and retail outlets. All of these products can be manufactured from industrial timber that is available from large sawmills as waste. Opportunities also exist in all forestry regions to supply agricultural boxes, crates and pallets to tomato, citrus and vegetable producers. Buyers include individual farmers, packaging companies and agricultural co-operatives.

2.2.3.4 Pole production

Pole production is a small market, but has good growth prospects. The transfer of DAF Category B and C plantations in Limpopo and Kwazulu-Natal offer immediate opportunities for SMMEs and rural communities to establish small enterprises producing treated timber poles. Almost all these plantations are linked to existing DWAF pole treatment plants, overcoming the hurdle of access to downstream processing facilities.

2.2.3.5 Charcoal

Charcoal production is seen as an ideal Small to Medium Enterprise activity. Small-scale production is economical; little capital is required; most activities are decentralised; being in rural areas in close proximity to major timber resources. Some large companies have already shown interest in forming joint ventures with small-scale producers to secure lump charcoal supplies on a regular basis. They are often prepared to provide funding, training and the initial investment required for small-scale production plants, as well as providing medium to longer term supply contracts. Although long- term sources of supply are very uncertain, the DWAF Category B and C plantations in the Eastern Cape and Limpopo contain extensive areas of hardwood suitable for charcoal manufacture.

2.2.3.6 Honey

Honey production represents a very small segment of the economy, but one that has good prospects for growth and in which the rural poor can engage. The foremost bee-keeping development agency in South Africa is the Bee-keeping for Poverty Relief Programme of the Agricultural Research Council (ARC). This programme supports participants who develop their enterprises at their own pace. The rapid expansion of the programme, in which participants themselves solve local problems such as theft, indicates the efficacy of this approach. Modest expansion within gum plantations is possible.

3. LEGISLATIVE AND POLICY FRAMEWORK

3.1 The Constitution Of The Republic Of South Africa, 1996

Section 24 of the South African Constitution stipulates that everyone has the right to

a. An environment that is not harmful to their health or well-being; and

b. To have the environment protected, for the benefit of present and future generations, through reasonable legislative and other measures that:

(i) prevent pollution and ecological degradation; (ii) promote conservation; and (iii) secure ecologically sustainable development and use of natural resources while promoting justifiable economic and social development.

10 In terms of the Constitution, forestry is a national competence. This implies that central Government, specifically The Department of Agriculture, Forestry and Fisheries, has the primary responsibility for the management of forest resources. However, it must be noted that the Constitution, 1996, also defines the administration of indigenous forests as a concurrent functional area of National and Provincial legislative competence (Schedule 4, Part A). DAFF is therefore in a process of transferring the management of its indigenous State Forests to the Department of Water and Environmental Affairs (to be administered by the South African National Parks) or relevant provincial organs of State.

3.2 White Paper on Sustainable Forest Development in South Africa

The White Paper on Sustainable Forest Development in South Africa, 1996 provided for government to deliver a wide range of support and services to ensure sustainable development of the forest sector.

The White Paper recognizes the key role of government at all levels (national, provincial and local) in achieving the vision of a sustainable and efficient forest sector and the need for coordination between the different levels of government, the private sector and civil society.

The goals of the White Paper are aligned to the National Government Medium-Term Strategic Objectives, which are as follows:

»» Speeding up delivery of basic human needs; »» Human Resource Development; »» Building the Economy and Creating Jobs; and »» Building a better Africa and world.

3.3 National Forests Act, 1998 (Act No 84 of 1998)

The purposes of the National Forests Act, 1998 (NFA) are to:

»» promote the sustainable management and development of forests for the benefit of all; »» create the conditions necessary to restructure forestry in State forests; »» provide special measures for the protection of certain forests and trees; »» promote the sustainable use of forests for environmental, economic, educational, recreational, cultural, health and spiritual purposes; »» promote community forestry; and »» promote greater participation in all aspects of forestry and the forest products industry by persons disadvantaged by unfair discrimination. 3.4 NATIONAL VELD AND FOREST FIRE ACT, 1998 (ACT NO 101 OF 1998)

The purpose of the National Veld and Forest Fire Act, 1998 (NVFFA) is to prevent and combat veld, forest and mountain fires throughout the Republic. The Act provides for a variety of institutions, methods and practices for achieving the purpose, i.e. the establishment and registration of Fire Protection Associations to deal with all aspects of veldfires prevention and fire fighting; the development and maintenance of a national fire danger rating system to assist in the prevention of veldfires; the preparation and maintenance of firebreaks by landowners; and fire fighting.

The NVFFA is intended to support Integrated Fire Management (IFM), which results in the integration of a number of

11 activities to allow effective management of fires, both to enhance their positive benefits and to reduce negative impacts:

»» Prescribed burning; »» Wildfire control; »» Risk minimization; »» Training and awareness; »» Resource management and co-ordination; and »» Ecosystem management.

IFM is also supported by various pieces of legislation providing the framework for cooperative governance and integration of this function:

»» Disaster Management Act, 2002 (Act No 57 of 2002) »» Conservation of Agricultural Resources Act, 1983 (Act No 43 of 1983) »» Municipal Systems Act, 2002 (Act No 32 of 2002) »» Fire Brigade Services Act, 1987 (Act No of 1987)

3.5 OTHER LEGISLATION IMPACTING THE FORESTRY SECTOR

3.5.1 National Water Act, 1998 (Act No 36 of 1998)

Afforestation has been regulated in South Africa since 1972. This was initially done by means of the Forest Act, 1968 (Act No 72 of 1968). This act was amended by the Forest Amendment Act, 1972 (Act No 46 of 1972) to make provision for the control of afforestation by the inclusion of section 4A. This amendment came into effect on 26 May 1972. The 1968 Act was further amended and replaced a number of times. Since 1998, DAFF has issued water use licences for forestry as a Stream Flow Reduction Activity (SFRA) in terms of the National Water Act, 1998 (NWA) (Act No 36 of 1998).

A SFRA is one of eleven water uses described in section 21 of the NWA. It is described as any activity (including the cultivation of any particular crop or other vegetation) likely to reduce the availability of water in a watercourse to the Reserve, to meet international obligations, or to other water users significantly. By implication, the definition of an SFRA limits it to land-based activities affecting the water resource. Currently, the only declared SFRA is commercial afforestation, but others may be added to this list in future.

3.5.2 Environmental Legislation

The National Department of Environment Affairs and Tourism (DEAT) administer the National Environmental Management Act, 1998 (NEMA) (Act No 107 of 1998). The aim of NEMA is to provide for co-operative environmental governance.

The regulations in terms of NEMA list specific activities that require authorisation. Although afforestation isnot specifically mentioned, basic assessments or environmental impact assessments are required depending on the area to be affected by afforestation.

3.5.3 Agricultural Legislation

The Department of Agriculture (DoA) administers the requirements of the Conservation of Agricultural Resources Act, 1983 (CARA) (Act No 43 of 1983). The aim of CARA is to protect agricultural resources, i.e. soil, water, and vegetation. Some of the tree species used in commercial forestry is listed in terms of CARA and therefore areas planted with these

12 species must be demarcated as required in terms of the regulations and transport permits for the transport of the trees must be obtained.

In addition to the above, DoA is also responsible for regulating the use of agricultural land. This could include the transfer of agricultural land to be used for forestry, the use of high potential agricultural soil for afforestation, and the transfer of water allocated to agriculture (food production) to afforestation.

3.5.4 Land Legislation

In terms of the Interim Protection of Informal Land Rights Act, 1996 (Act No 31 of 1996), land to which people have informal right (including communally owned land) is nominally held in trust by the Minister of Land Affairs. This implies that the decision to develop communal forestry on such land would require the consent of the Minister of Land Affairs. However, in terms of the Interim Procedures released by the Department of Land Affairs (DLA) in December 1997, such decisions are most appropriately made by the majority of the community members. The Minister’s role is simply to ratify such community resolutions. The Minister of Rural Developement and Land Reform and the relevant community are therefore regarded as co-owners of communal land.

This situation will change once the Communal Land Rights Act (CLARA), 2004 (Act No 11 of 2004) is implemented. In terms of CLARA, formal land ownership rights will be transferred from the Minister of Land Affairs to communities who have informal rights to land.

The Restitution of Land Rights Act, 1994 (Act No 22 of 1994) that provides for the restitution of rights in land in respect of which persons or communities were dispossessed under or for the purpose of furthering the objects of any racially based discriminatory law, has an impact on the forestry sector. Approximately 65% of privately owned plantations are under land claims and this will have an impact on the sector, especially in terms of securing the resource for future operations.

3.5.5 Labour Legislation

The labour laws in South Africa are considered as some of the most progressive in the world. These laws have significant implications for the forestry sector and place an obligation on the sector to implement and promote fair labour practice and ensure employees are exposed to healthy and safe work environments.

3.6 Forest Sector BBBEE Charter

The Department, in collaboration with the sector and labour has developed a Forest Sector BBBEE Charter which is a growth and transformation Charter. The Charter was signed on 22 May 2008 in . It is the major instrument for development within forestry in the medium term.

This Charter applies to all enterprises involved with commercial forestry and first-level processing of wood products. This covers the following sub-sectors:

»» Growers sub-sector (plantations, nurseries and indigenous forests) »» Contracting sub-sector (forestry contractors in silviculture, harvesting, fire-fighting services and other forestry contracting services that are not covered by their own Sector Charters) »» Sawmilling sub-sector »» Fibre sub-sector (pulp, paper, paperboard, timber board-product, woodchip and wattle bark manufactures) »» Pole sub-sector (pole treatment plants) »» Charcoal sub-sector (charcoal producers)

13 In general, the Charter incorporates targets for enterprises within the sector to achieve, in order to strengthen the positive role of the sector in contributing to economic growth and employment creation and in supporting rural and local development.

The Forestry BBBEE Charter has identified specific challenges that need to be addressed to ensure equity with growth in the forest sector. These include, among others, the following: i. Increased local supply of round wood to underpin sustainability and throughout the forestry value chain; ii. Sustainable supply and better utilization of the country’s limited sawlog resources; iii. Increased local beneficiation in and through the fibre production sub-sector; iv. Greater equity in the entire value chain of forestry; v. Greater empowerment and profitability of existing small scale forest enterprises and ;

vi. Linking forestry as a rural based industry with poverty eradication and local economic development.

3.7 ASGI-SA and the National Industrial Policy Framework

The Accelerated and Shared Growth-South Africa (ASGI-SA) is the instrument of development policy that aims to address the core objective of Government, i.e. to halve poverty and unemployment by 2014.

Both ASGISA and the National Industrial Policy Framework (NIPF) identify the forest sector as a sector that has potential for growth. The Industrial Policy Action Plan (IPAP) (published by the Department of Trade and Industry (DTI), August 2007) emanating from the NIPF, identifies the forestry, pulp, paper and furniture sector as a growth sector of the economy that needs to be developed in support of the ASGI-SA. The forestry, pulp and paper, and furniture sector is thus one of the four lead sectors that currently form the central focus for the implementation of the NIPF. This sector has the potential to bring jobs and income to poor rural communities. Increasing plantations in Eastern Cape and KwaZulu-Natal in the next 10 years will contribute to the province’s growth and employment and stimulate processing activities, such as sawmilling and furniture.

The IPAP provides for a sector growth strategy and action plan for the forestry, pulp, paper and furniture sectors in which the Department of Trade and Industry (DTI) and DWAF must jointly take the lead. In terms of actions to be taken, the IPAP text states that “in order to realise growth in this sector, government has committed itself to:

»» Expediting the afforestation licensing process; »» The confirmation of land rights for land holding communities; »» Technical and financial support to emerging small growers; and »» Improvements to transport infrastructure”.

Key action plans have been developed to give effect to the above. It is important to note that the sector growth strategy and action plan covered in the IPAP is closely linked to the Transformation Charter for black economic empowerment in the Forest Sector. The Forest Sector Broad-Based Black Economic Empowerment (BBBEE) Charter emphasises the link between transformation and growth in the sector and outlines government and industry undertakings to give effect thereto. DAFF developed a “Strategic Plan for the Implementation of the Forest Sector Transformation Charter” to give effect to these undertakings. The Department of Trade and Industry also initiated a process for providing incentives under the Enterprise Investment Programme with a total funding of R5.6 billion in 2008/9.

3.8 INTERNATIONAL POLICY FRAMEWORK AND CO-OPERATION

South Africa is a Party and or Signatory to a number of International Conventions, Treaties, Agreements, Organisations and Bodies which place obligations on member States on forestry. The United Nations Convention on Biological Diversity

14 (CBD); the Convention on International Trade in Endangered Species of Wild Fauna and Flora; United Nations Forum on Forests (UNFF), Committee on Forestry (COFO) under the auspices of the United Nations Food and Agriculture Organisation and the SADC Regional Protocol on Forestry are the among such. The Committee on Forestry (COFO) is the highest FAO Forestry statutory body. The biennial sessions of COFO bring together heads of forest services and other senior government officials to identify emerging policy and technical issues, to seek solutions and to advise FAO and others on appropriate action. Other international organizations and, increasingly, non-governmental groups participate in COFO.

The United Nations Forum on Forests (UNFF) was established by the Economic and Social Council of the United Nations (ECOSOC) as a subsidiary body with the main objective to promote the management, conservation and sustainable development of all types of forests and to strengthen long-term political commitment.

Establishment of UNFF was preceded by a five year period of dialogue on international forestry policy. This dialogue took place between two bodies namely the Intergovernmental Panel on Forests (IPF), established by the Commission on Sustainable Development (CSD) and the Intergovernmental Forum on Forests (IFF), established by ECOSOC. PART TWO: FORESTRY SECTOR CHALLENGES 4. KEY CONSTRAINTS TO FORESTRY GROWTH

The forestry sector faces various challenges and constraints that may hamper the sector to realize its full potential in terms of its contribution to sustainable development. The Department, in consultation with stakeholders identified the challenges and potential strategic interventions to address the challenges.

4.1 Challenge 1: Land Reform

Many studies have shown that tenure security is a major requirement for forestry investment and development. The problem is in defining the rights, roles and responsibilities associated with forest use which are crucial for the poor to receive an equitable share of the benefits from forestry. At present, great uncertainty exists over the long-term ownership of forest lands. It is estimated that 60% of Komatiland (state-owned plantation), 48% of Mondi’s 375 000 ha land and 17.5% of SAPPI’s 540 000 ha privately owned plantations are subject to land claims. In the absence of the speedy resolution of these claims many people are not certain about how the benefits will eventually be shared. Uncertainty also exists on the ground with regards to the powers and responsibilities of traditional authorities and local communities in the management and control of woodlands, indigenous forests and woodlots in communal areas post-1994. But this is also a local issue, and may require intervention through local council by-laws. The emergence of new municipal structures in rural areas and their roles and responsibilities vis-à-vis those of traditional authorities are not well understood and have effectively weakened local control over forest resources in many areas of the country. The Department of Rural Development and Land Reform (DRDLR) is developing policy in this area, to allow greater security in all South Africa’s land tenure systems and has recently adopted a model that will be used to settle land claims on privately owned plantation areas. DAFF together with DRDLR and affected communities will continue to address land reform in communal areas.

4.1.1 Post Settlement Support to Communities/Community Readiness

Support to communities for forestry development in the form of policies, programmes or technically is inadequate and / or ineffective. Access to extension support services is critical for the success of emerging entrepreneurs. Industry cooperatives and companies play an important role in providing these services. However, these are focused mainly to ensure the supply of raw material to the corporate forestry companies for processing purposes. There is a need to extend such services to the entire value chain so that emerging entrepreneurs can enter and benefit along the entire value chain. Government therefore has a role to play in availing these services to fast track access to opportunities in the entire value chain for emerging entrepreneurs and for those growers who do not wish to be linked to a market but want to establish themselves independently.

15 4.1.2 Transfer to communities and Commercialisation of State Assets

The Department manages the current Lease agreements involving state assets that were privatised / restructured. During the restructuring process other agreements, such as the Shareholders agreement and Business Sale agreement, were concluded by the Department of Public Enterprise (DPE). These agreements have implications on the success of the current long term lease agreements, especially as it relates to benefits to land beneficiaries.

The initial restructuring approach did not result in sufficient community beneficiation and have resulted in communities only entitled to rental and 10% share holding. In view of these anomalies DAFF together with DRDLR and DPE are working on a model which will result in the equitable beneficiation of communities with the Komatiland forestry package. The model to be developed must be acceptable to the various land beneficiaries affected.

With regards to category B and C plantations, DAFF will in line with the principles of government land reform policy transfer the assets to the rightful land beneficiaries with the view to retain forestry as a land use. DAFF will assist communities with the business model that will ensure the involvement of a strategic partner. The identification and verification of land beneficiaries pose a challenge in finalising these transfers.

DAFF and DRDLR have developed a transfer model for implementation in the private sector. This model will result in the retention of all privately owned plantations for plantation forestry under long term lease agreements. Government through DAFF and DRDLR will monitor compliance with the long term lease on behalf of the communities. This model has not yet been implemented and community readiness referred to above will play an important role in ensuring the successful implementation of the model.

4.2 Challenge 2: Raising the Profile of the Forestry Sector

The South African Forestry industry contributes significantly to the country’s economic development, while it maintains high environmental standards. However, negative publicity from various sources often undermines and overshadows the contribution that forestry makes towards economic development in rural areas.

A recent study showed that the Department and industry do not do enough to promote the sector and that the general public has a neutral to negative perception of the forestry industry. There is therefore a need to raise the profile of the industry by, among others, convincing people to invest in the industry; encouraging students to make Forestry a career of choice; and informing consumers of timber products; about the environmental benefits of buying FSC-certified, South African timber vs. timber imported from uncertified sources etc.

4.3 Challenge 3: Timber Shortage in the Country

Over the last few years there had been several studies that confirmed the fact that the country is now beginning to experience a shortage of timber. This shortage can be expected to affect government’s intentions to achieve a 6% economic growth rate. The effects of a shortage of timber is already evident in some parts of the country, where this is having an adverse effect on the sustainability of local sawmilling, pulp and paper operations and subsequently pose a threat to employment opportunities and local economies. It is anticipated that South Africa will in future not be able to meet its domestic demand for timber from the existing growing stock in timber (Table 4). This will affect the national economy through increased prices and lack of timber products to meet domestic demand. There are also risks involved with timber imports that include the introduction of pests and diseases, which may threaten our local forestry industry.

16 Table 4: Long Term Demand and Supply Scenario (Source: Forestry South Africa, 2007)

Total Demand Surplus (+) / Deficit (-) Five Year Period Total Supply (tons) (tons) tons) / (%) 2005 – 2009 20 550 761 23 249 214 -2 698 453 -13.1 2010 – 2014 20 087 199 23 932 910 -3 845 711 -19.1 2015 – 2019 18 609 931 24 650 053 -6 040 122 -32.5 2020 – 2024 19 454 356 25 448 516 -5 994 160 -30.8 2025 – 2029 18 666 332 26 372 899 -7 706 567 -41.4 2030 – 2034 18 134 701 27 501 409 -9 366 708 -51.7

Estimated sustainable 19 250 547 25 192 500 -5 941 953 -23.2 supply

4.4 Challenge 4: Access to Funding

Afforestation and forestry enterprise development require access to financial and extension support services. Forestry is a business that requires large amounts of capital to be invested over a long rotation period. The Forest Sector Transformation Charter proposes the establishment of a forest enterprise development Fund that provides for:

»» A forestry grant aimed at forest enterprise development (subsidising interest), and »» Seed funding for the development of fires insurance scheme for emerging growers 4.5 Challenge 5: Skills Shortage in Forestry Sector

The Forest Sector Charter identifies the dire shortage of critical, scarce and core skills as well as shortcomings in skills development infrastructure in the sector as key constraints to transformational growth. A concerted and coordinated sector initiative is required to address this challenge. The Forest Sector Transformation Charter highlights the need to develop and implement a sector skills plan through FIETA and the Forestry Paper Pulp and Timber Chambers. The Department must play an active role through their participation in FIETA and contribute to the sector leadership role initiative.

4.6 Challenge 6: Research Development and Innovation

A study commissioned by the Department into the current activities and future requirements for Research and Development (R&D) in the Forestry sector has found that with the exception of a few pockets of excellence, forest sector R&D activities suffer from under-funding, lack of co-ordination and a declining skills base and that this situation has to be rectified to ensure that South Africa’s national development imperatives in the forestry sector can be met. This also undermines the country’s ability as signatory to a number of international and regional conventions (e.g. NEPAD and SADC Protocol), that deal with forestry R&D collaboration, to adequately fulfil its international obligations. Insufficient strategic leadership by both Government and Industry in forest sector R&D was identified as the major stumbling block in dealing with the challenges. The National R&D Strategy (2002) requires that Sector R&D strategies be prepared and that line departments must take the lead in sectors they serve. A forest sector R&D strategy needs to be launched and the institutional capacity within the Department needs to be strengthened to take the lead in this regard. This need has also been highlighted in the Forest Sector Transformation Charter.

17 4.7 Challenge 7: Climate Change

This being a new challenge facing the globe, South Africa will also be negatively impacted by this phenomenon. Currently there is no comprehensive data or information on this aspect to enable informed decision-making. Climate Change, and the role that forestry can play in mitigating the impacts of climate change, is now widely accepted as one of the most significant global issues. It is anticipated that Climate Change will have significant impacts on forestry in South Africa, at the same time forestry could offer meaningful mitigation possibilities.

The outcomes of the Bali 2007 meeting, indicate the need of reversing the rate of deforestation. Deforestation in developing countries accounts for an estimated 18 – 20% of global GHG (green house gas) emissions. This is perceived to be an area of early gain if deforestation can be halted.

Vulnerability as a result of climate change is probably the most important issue in South Africa. Climate models predict drying out of the Western Cape, while in the summer rainfall areas there already seems to be a trend of warmer temperatures, especially winters. From a mitigation point of view it is worth noting that the forestry sector in South Africa is a net sink of carbon (it removes more carbon dioxide than it releases). It is probably the only sector that can claim this, as agriculture emits more GHG than it removes. However, the South African forestry baseline is small and curtailed by the dry climate, restrictions on water as well as biodiversity concerns.

4.8 Challenge 8: Forestry Protection

Whereas fairly clear mandates and legislative provisions exist for the protection of South Africa’s biodiversity, South Africa still lags far behind the 15% target of natural areas under protection, which is globally widely pursued. Only 6.8% of South Africa’s total land area is currently under formal protection. Even where protection measures are in place, there remain persistent pressures on protected areas from neighbouring communities, industrial and mining developments as well as urban development. Certain forest types are persistently under pressure from resource utilisation and development, for example coastal and scarp forests. One of the principles of the NFA is that natural forests may not be destroyed save under exceptional circumstances. It remains a challenge to enforce this principle. Once forests have been degraded, the damage is difficult to remedy and therefore it is vital that forest be maintained and utilised sustainably.

The definition of woodlands in the NFA covers both savannah and thicket. About 9% of the total area of savannah is contained in formally protected areas and 7% of the thicket biome. However, this legacy from the past does not reflect the actual conservation priorities within these biomes, as protection in the past was done on an ad-hoc basis. The Principles of the NFA requires that minimum areas of all different woodlands types should be protected. A serious constraint in conservation planning at present is the lack of adequate data, especially for some forest and woodland types. Inadequate mapping of natural forests and woodlands makes spatial planning for conservation difficult.

4.9 Challenge 9: Forestry and Regulatory Environment

The small, medium and micro business sector in terms of contribution to GDP and employment partly arises from the sub-optimal regulatory environment. In the administration of tax, the planning system (including Environmental Impact Assessment), municipal regulation, the administration of labour law (specially on gender) and, in specific sectoral regulatory environments, regulation unnecessarily hampers the development of businesses. Growth especially in the commercial forest industry is constrained by a wide variety of legal requirements that negatively affect the business environment in South Africa in general and the forestry sector in particular (See Figure 2).

18 Figure 2: Land Use comparisons in South Africa in different years.

Source: Department of Water Affairs and Forestry ,2008

There have been enormous gains in the regulatory system since 1994, with the 1998 National Forests Act (NFA) designed to promote sustainable use, co-operative governance and stakeholder participation. Despite this, the system remains restrictive in some areas, with excessive bureaucracy and overly constraining regulations. For example, it remains that there are number of challenges for small growers to obtain the necessary licences for afforestation under the National Water Act, 1998 and therefore many have established their plantations illegally. As a result, companies are now finding difficulty in supplying their mills with timber purchased from such small growers without affecting their certification conditions. Providing exemptions from the cumbersome licensing procedure might be one solution. Such an approach has been introduced within the NFA. However, only communities neighbouring State forests wishing to collect forest produce for domestic use are exempt from having to obtain a licence under the NFA. All other forest produce collection requires authorization from DWAF, and the practicalities of obtaining these licenses are fraught with problems.

4.10 Challenge 10: Monitoring and Evaluation

Information is the cornerstone of adaptive management and sound decision making. Reliable and up-to-date spatial and non spatial information forms the basis for much of the operational and strategic planning in Forestry. Forest monitoring depends on the spatial baseline information and provides further quantitative and qualitative information that informs planning and decision making. Specific technical and subject information is further required on the range of forestry applications and technology. The National Forests Act (NFA) provides a strong mandate for forest monitoring and dissemination of the information generated through monitoring. At present a set of Criteria, Indicators and Measures (C&I) are available for promoting Sustainable Forest Management. These C&I should also form the basis for forest monitoring. However, the C&I are currently only applicable within the Department and performance against these instruments of measurement is weak. This undermines the ability of the Department to use this instrument for monitoring the sector as a whole.

19 PART THREE : THE FUTURE FORESTRY SECTOR

5. NATIONAL FORESTRY ROADMAP

5.1 Problem Statement

The sector has experienced a number of challenges which hindered the sector from realising its full potential contribution to job and wealth creation as well as conservation of biological diversity. The challenges range from inadequate supply of timber products; biased equity distribution in the value chain; contribution to poverty alleviation and economic development; and slow afforestation uptake due to cumbersome licensing processes within government. Furthermore the forestry industry is concentrated in few companies. These challenges threaten long term sustainability of the sector and needs to be addressed as matter of urgency and priority.

5.2 Vision

We aspire to be a vibrant, profitable, sustainable and growing forest sector, which significantly contributes tothe country’s economic growth, employment, poverty eradication and transformation in South Africa.

5.3 Mission

Our mission is to promote a thriving forest sector which significantly contributes to the country’s economic growth, employment, poverty eradication and transformation by wide consultation / participation in formulating and implementing policies of the forest sector in South Africa.

5.4 Principles

The vision to grow and develop the forestry sector is based on the following broad principles:

»» Forests and forests resources to be treated as national assets »» Policy to be formulated and implemented so as to promote democratisation »» Forest management planning that promotes sustainable use, development and conservation of the forest resources »» Forests are protected from negative effects of fire, pests and diseases and alien invader plants »» People driven development and gender equity »» Recognition of the scarcity of water resources »» A competitive and value adding forest sector »» Clearly defined, recognised and secure land tenure of forest areas »» Cultural, ecological, recreational, historical, aesthetic and spiritual sites and services supplied by forests are maintained »» Forests developed and managed so that persons or categories of persons previously disadvantaged by unfair discrimination are advanced »» Decent employment conditions.

20 5.5 Policy Context

This roadmap is informed by White Paper on Sustainable Forest Management (1997), National Forests Act, 1998 (Act No 36 of 1998), National Veld and Forest Fire Act, 1998 (Act No 101 of 1998), Forest Sector BBBEE Charter, ASGISA and National Industrial Policy Framework, and Governments’ Programme of Action.

5.6 Strategic Objectives

SO 1 Facilitate improved timber availability and secure supply of timber to ensure sustainability of entire timber value chain;

SO 2 Increase the contribution of all types of forests and related goods and services to the quality of life of South Africans with particular focus on rural and disadvantaged communities; SO 3 Promote conservation of forest biological diversity, ecosystems and habitats, while promoting the fair and equitable distribution of their economic, social, health and environmental benefits; SO 4 Facilitate skills development, awareness raising and information sharing with a view to enhance the profile of forestry as a sector; SO 5 Implement innovative ways to enhance and streamline the regulatory environment to assist the sector to be compliant while reaching its potential in terms of sustainable development; SO 6 Create enabling institutional and financial arrangements for sustainable forest management; SO 7 Maintain the South African forest sector as a knowledge-based enterprise, adapt to addressing constraints to growth in the sector and managing the risks to growth; SO 8 Strengthen international and regional partnership in order to enhance sustainable forest management.

21 5.7 Forestry Road Map

Target Action Responsibility Partners Time frame Strategic Objective 1: Facilitate improved timber availability and secure supply of timber to ensure sustainability of entire timber value chain. Short term and long term Facilitate and support afforestation initiatives DAFF Industry/ DTI/ MT demand of fibre is met and for identified 100 000 ha available land DWEA sustained Facilitate and support transport infrastructure DAFF DoT/ DPW MT plan for afforestation Investigate the possibility of trading DAFF DTI LT and investing in neighbouring countries particularly with respect to small enterprising Support the long and short rotations through DAFF DTI/ Industry/ LT promoting research and development DST Strengthen efforts to the rehabilitation of DAFF SAFCOL ST MT Category B & C State Plantations Strategic Objective 2: Increase the contribution of all types of forests and related goods and services to the quality of life of South Africans with particular focus on rural and disadvantaged communities. Forest based economic, Development of National certification DAFF Industry/ LT social and environmental standards for self regulation of plantations and DWEA benefits are enhanced and natural forests and review of its effectiveness. shared equitably Promote and support certification of small DAFF Industry M growers Finalisation of a policy to allow greater DAFF DRD&LR MT security in South Africa’s land tenure systems DWEA, and implementation of an already adopted model aimed to be used to settle land claims on Industry privately owned plantation areas. Support measures aimed at rehabilitation and DAFF DWEA ST conservation of woodlands and natural forests. Develop and implement a system for effective DAFF DWEA ST access to and management of off-take from woodlands and natural forests Support implementation of the Forest DAFF Charter ST Transformation Charter. Council Strategic Objective 3: Promote conservation of forest biological diversity, ecosystems and habitats, while promoting the fair and equitable distribution of their economic, social, health and environmental benefits. Area of protected forests is Accelerate transfer of forest assets to DAFF DWEA MT increased appropriate conservation agencies CAs DRD&LR Support classification updates and mapping DAFF DWEA MT of identified woodlands and natural forests for conservation, livelihoods and reporting purposes. Support expansion of protected area network, DAFF DWEA LT focusing on under-conserved natural forest and woodland types.

22 Target Action Responsibility Partners Time frame Strategic Objective 4: Facilitate skills development, awareness raising and information sharing with a view to enhance the profile of forestry as a sector. Forestry sector skills Develop an implementation plan to give effect DAFF FIETA ST MT development strategy to the Skills Development Strategy Industry implemented Promote the sector through communication DAFF FIETA ST campaigns in schools Industry Forestry considered as Develop and implement a high – level DAFF Media ST career of choice awareness raising programme associated with the International Year of Forests. Benefits from forests are Disseminate the Forest Sector Charter to all DAFF FIETA ST communicated to all stakeholders Charter Council Facilitate development, recruitment and DAFF Tertiary MT LT retention of scarce skills in the forestry sector Institutions nationally and internationally Industry Ensure mainstreaming of forestry in DAFF Prov. & Local LT planning process of other spheres and tiers of Departments government as well as other sectors Strategic Objective 5: Implement innovative ways to enhance and streamline the regulatory environment to assist the sector to be compliant while reaching its potential in terms of sustainable development. Regulatory environment National Forest Act amended to ensure better DAFF Industry ST LT is effective, efficient and compliance. promote transformation of the sector. Amendment of National Veld and Forest Fire DAFF Municipalities ST Act to provide for municipal support to fire management. Review the water licensing process for DAFF Industry LT afforestation. DWEA Develop and implement a monitoring system DAFF Industry LT to ensure sustainable forest management and DWEA its value. Develop a system for evaluating economic DAFF LT benefit of forests Monitor the performance of the forestry sector DAFF DWEA LT in terms of sustainable forest management Industry against P C I & S. Address compliance issues in terms of existing DAFF Industry ST plantations and assist where rehabilitation is required Strategic Objective 6: Create enabling institutional and financial arrangements for sustainable forest development of the forest sector.

Institutional and financial Establish funding mechanism and secure funds DAFF Treasury MT arrangements that to promote forest enterprise development. support sustainable forest management are in place Establish a comprehensive post land DAFF ST settlement support service within the Department that in partnership with the industry will provide support to communities and land claimants.

23 Target Action Responsibility Partners Time frame Strategic 7: Establish the South African forest sector as a knowledge-based enterprise, adept to addressing constraints to growth in the sector and managing the risks to growth. Establish a centrally managed facility for all DAFF DRD&LR ST agreements related to transfer of State forests. National Treasury Support community, public, private DAFF National MT partnerships in and across forestry sector Treasury Financing Institutions The Forestry sector has Develop and implement a Forest Sector DAFF DST MT access to information, research and development strategy with clearly Tertiary appropriate technology outlined responsibilities, funding mechanisms Institutions. and innovation to support and timelines CSIR, ARC, transformation and Industry enterprise development, while protecting and Develop and implement a national strategy for DAFF Industry MT conserving the resource the control and prevention of forest fire. Research Insts. base. DTI Development and Ensure that the strategy to prevent and control DAFF Industry LT management of forests in pests and diseases is functional and effective. Research South Africa takes into account international Insts. obligations and does not Support efforts to promote the natural-fibre DAFF DTI, Industry MT harm but strengthens world development and commercialisation of forestry sectors in the new biological products region. Support measures to create and maintain DAFF Industry MT an adequate body of excellent professionals Tertiary Insts. addressing forest sector STI needs, supported by an effective set of institutional CSIR arrangements DST Maximise the aggregate of beneficial goods DAFF Industry LT and services from the forest sector in South DWEA Africa through the rehabilitation, growth and sustenance of the resource base and the minimisation of waste. Continuously improve the performance of DAFF Industry LT forests to optimise and sustain the yield of forest goods and services from the land. Develop adaptive responses to economic, DAFF DST LT market and technology scenarios as well as DWEA climate change scenarios.

24 Target Action Responsibility Partners Time frame Strategic Objective 8: Strengthen international and regional partnership in order to enhance sustainable forest management. Facilitate benefits related to availability of DAFF DTI ST timber from the region Continue collaborations with SADC member DAFF SADC ST states to ensure the ratification of the SADC DIRC Protocol on Forestry. Finalise the Strategy for the Implementation of DAFF MT the SADC Protocol on Forestry and collaborate with member states to initiate implementation. Collaborate with countries in the Region to DAFF DIRC MT facilitate compliance with the Non-legally UNFF binding instrument for sustainable forest management as adopted by UNFF7.

6. RESOURCING THE ROADMAP

The Forestry Branch in the Department of Agriculture, Forestry and Fisheries is the primary custodian of this strategy and therefore its implementation. The Department should ensure proper coordination and collaboration with relevant stakeholders. The Department will however use existing structures as mechanisms for coordination and collaboration. These structures include the Transformation Charter Council, the National Forests Advisory Forum and the Forestry Stakeholder Forum. Where necessary, task teams or committees under these structures will be established to advise on specific issues with a view to facilitate effective implementation of, coordination, monitoring and reporting on the strategy.

The Branch will endeavour to commit 30% of its budget for the successful implementation of this strategy. Furthermore, the Department will engage international donor institutions and countries to support afforestation programmes and initiatives. The Department will also support afforestation projects to be implemented under the CDM. The Forestry Sector Transformation Charter Council will be used as a vehicle for achievement of objectives of this strategy.

The Branch will use existing communication, awareness and outreach programmes and platforms to raise awareness about the strategy and report on its implementation to the public.

7. MONITORING, REPORTING AND REVIEW

The Forestry Branch within the Department of Agriculture, Forestry and Fisheries will be responsible for ensuring effective implementation of this strategy document as well as monitoring and review of the implementation plan. The Branch will work closely with Industry, the Transformation Charter Council and other Government Departments in its pursuit of implementing this strategy.

Monitoring and evaluation of the roadmap will be undertaken by the Department and will assist in determining whether the strategy should be reviewed. The roadmap should be reviewed when a significant number of milestones have been achieved.

25 REFERENCES Department of Environmental Affairs and Tourism (2004): A National Climate Change Response Strategy for South Africa - September 2004. Department of Environmental Affairs and Tourism Department of Environmental Affairs and Tourism: The National Protected Area Expansion Strategy 2008- 2012. February 2008: South African Biodiversity Institute and National Department of Environmental Affairs and Tourism. Unpublished Department of Environmental Affairs and Tourism (2005): South Africa’s National Biodiversity Strategy and Action Plan 2005.Department of Environmental Affairs and Tourism, . Department of Trade and Industry (Undated): Strategic Framework for the Forestry, Timber, Pulp and Paper Industry. Undated Draft document: Department of Trade and Industry Department of Water Affairs and Forestry (2005): A Woodland Strategy Framework for the Department of Water Affairs and Forestry- June 2005, Pretoria. Department of Water Affairs and Forestry (2005): Draft Key Issue Paper on Forestry and Poverty in South Africa. Department of Water Affairs and Forestry, Pretoria. Department of Water Affairs and Forestry (2005): Draft Strategy Framework for Forestry Enterprise Development – June 2005. Department of Water Affairs and Forestry, Pretoria. Department of Water Affairs and Forestry (2008): Abstract of South African Forestry Facts for the year 2006/2007 Leaflet, Department of Water Affairs and Forestry. Pretoria. Forestry South Africa (2008): Abstract of South African Forestry Facts for the Year 2006/2007. Forestry South Africa: September 2008. and in www.forestry.co.za

ANNEXURE A

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31 ANNEXURE B

ANNUAL PLAN OF IMPLEMENTATION

2009- 2012- 2015- 2020 - 2025 2027- Actions 2011 2014 2019 2024 -2027 2030 1. Facilitate and support afforestation initiatives for the X identified 100 000ha available land. 2. Strengthen efforts to the rehabilitation of Category B & X X C State Plantations.

3. Investigate the possibility of trading and investing in neighbouring countries particularly with respect to small X X X enterprising

4. Support the long and short rotations through promoting X X X X X X research and development. 5. Facilitate and support speedy uptake of afforestation X X initiatives in Eastern Cape and KwaZulu-Natal. 6. Development of National certification standards for self regulation of plantations and natural forests and review of X X X X its effectiveness. 7. Promote and support certification of small growers. X X 8. Finalisation of a policy to allow greater security in South Africa’s land tenure systems and implementation of X an already adopted model aimed to be used to settle land claims on privately owned plantation areas. 9. Support measures aimed at rehabilitation and X X conservation of woodlands and natural forests 10. Develop and implement a system for effective management of access to and off-take from natural forests X X and woodlands. 11. Support implementation of the Forest Transformation X X X X X X Charter. 12. Accelerate transfer of forest assets to appropriate X X X X X X conservation agencies. 13. Support classification updates and mapping of identified woodlands and natural forests for conservation, livelihoods X X X and reporting purposes. 14. Support expansion of protected area network, focusing X X X on under-conserved natural forest and woodland types.

32 2009- 2012- 2015- 2020 - 2025 2027- Actions 2011 2014 2019 2024 -2027 2030 15. Develop an implementation plan to give effect to the X X X X X X skills development strategy. 16. Promote the sector through communication campaigns X X in schools 17. Develop and implement a high – level awareness raising programme associated with the International Year of X Forests 18. Disseminate the Forest Sector Charter to all X stakeholders 19. Facilitate development, recruitment and retention of X X X X X X scarce skills in the forestry sector and internationally 20. Ensure mainstreaming of forestry in planning process of other spheres and tiers of government as well as other X X X X X X sectors 21. National Forests Act amended to ensure better X X X compliance 22. Amendment of National Veld and Forest Fire Act to X provide for municipal support to fire management. 23. Review the water licensing process for afforestation. X 24. Develop and implement a monitoring system to ensure X X X X X X Sustainable Forestry Management and its value. 25. Develop a system for evaluating the economic benefits X X of forest 26. Monitor the performance of the forestry sector in terms X X X X X X of sustainable forest management against P C I & S. 27. Address compliance issues in terms of existing X X plantations and assist where rehabilitation is required 28. Establish funding mechanism and secure funds to X X X promote forest enterprise development. 29. Establish a comprehensive post land settlement support service within the Department that in partnership with X the industry will provide support to communities and land claimants. 30. Establish a centrally managed facility for all agreements X related to transfer of State forests. 31. Support community, public, private partnerships in and X X across forestry sector

33 2009- 2012- 2015- 2020 - 2025 2027- Actions 2011 2014 2019 2024 -2027 2030

32. Develop and implement a Forest Sector Research and Development Strategy with clearly outlined X X X X X X responsibilities, funding mechanisms and timelines. 33. Develop and implement a national strategy for the X X control and prevention of forest fire. 34. Ensure that strategy to prevent and control pest and X X disease is functional and effective 35. Support efforts to promote the natural-fibre world development and commercialisation of new biological X X products. 36. Support measures to create and maintain an adequate body of excellent professionals addressing forest sector X X X X X X STI needs, supported by an effective set of institutional arrangements. 37. Maximise the aggregate of beneficial goods and services from the forest sector in South Africa through the X X X X X X rehabilitation, growth and sustenance of the resource base and the minimisation of waste. 38. Continuously improve the performance of forests to optimise and sustain the yield of forest goods and services X X X X X X from the land. 39. Develop adaptive responses to economic, market and X X X technology scenarios as well as climate change scenarios. 40. Facilitate benefits related to availability of timber from X X X X X X the region 41. Continue collaborations with SADC member states to X X ensure the ratification of the SADC Protocol on Forestry. 42. Finalise the Strategy for the Implementation of the SADC Protocol on Forestry and collaborate with member X X states to initiate implementation. 43. Collaborate with countries in the Region to facilitate compliance with the Non-legally binding instrument for X X sustainable forest management as adopted by UNFF7.

34 35