MUNICIPAL FOREST MANAGEMENT IN LATIN AMERICA Edited by LYES` FERROUKHI Center for International Forestry Research Jln. CIFOR, Situ Gede, Sindang Barang, Bogor Barat 16680, Indonesia International Development Research Centre Ottawa • Dakar • Cairo • Montevideo • Nairobi • New Delhi • Singapore Municipal Forest Management in Latin America Municipal Forest Management in Latin America Table of Contents Indice Center for International Forestry Research P.O. Box 6596 JKPWB, Jakarta 10065, Indonesia Acknowledgements …………………………………………………………………………… 4 [email protected] / http://www.cifor.cgiar.org ISBN 979-3361-05-0 Preface ………………………………………………………………………………………. 5 David Kaimowitz International Development Research Centre PO Box 8500, Ottawa, ON, Canada K1G 3H9 Introduction …………………………………………………………………………………. 7 [email protected] / http://www.idrc.ca Lyès Ferroukhi, Anne Larson, Pablo Pacheco ISBN 1-55250-131-0 Municipalities and local participation in forest management in Bolivia …………….. 19 IDRC Regional Office for Latin America and the Caribbean Pablo Pacheco Avda. Brasil 2655, Casilla de Correos 6379, Montevideo, Uruguay Pablo [email protected] / http://ww.idrc.ca/lacro Municipal forest management: A new alternative for Honduras ………………….......co57 Mario Vallejo Larios Mario Valejo A co-publication of the Center for International Forestry Research (CIFOR) and the International Development Decentralized forest management policies in Guatemala ……………………………... Research Centre (IDRC). All rights reserved. No part of this publication may be reproduced, stored in a recovery 89 Lyès Ferroukhi and Ronald Echeverría Lyès system or transmitted in any way or by any medium, be it electronic, mechanical, photocopy or any other, without Ferroukhi, prior authorization from CIFOR and IDRC. The geographic names and the presentation of materials used in this Municipal forest management in Nicaragua: Decentralized Ronald publication do not imply the expression of any opinion on the part of CIFOR or IDRC or of the different burdens, centralized benefits? ………………………………………………………….... organizations that collaborated in developing this publication regarding the judicial condition of any country, 113 Anne M. Larson Anne M. territory or region or its authorities or with respect to the delimitation of its borders or limits. In addition, the Larson opinions expressed are those of the authors and do not necessarily reflect the viewpoints of CIFOR, IDRC or its Forest management in Brazil’s Amazonian municipalities ………………….........….. collaborators. Reference to the registered name does not constitute an endorsement of the product and is offered 145 Fabiano Toni only for informational purposes. Fabiano Toni Progress and challenges of municipal forest management in Costa Rica…………….. 179 National Library of Indonesia Cataloging –in-Publication Data: Lyès Ferroukhi and Alejandra Aguilar Schramm Lyès Ferroukhi, Municipal Forest Management in Latin America = La Gestión Forestal Municipal en América Latina Conclusions ………………………………………………………………………………… 213 Ed. by Lyès Ferroukhi.--Bogor, Indonesia: CIFOR, IDRC, 2003. Anne M. Larson and Lyès Ferroukhi Anne M. 236 p.; 25 x 17,5 cm Larson, ISBN 979-3361-05-0 About the authors …………………………………………………………………………… 234 1. Descentralización 2. Gobiernos Locales 3. Municipalidades 4. Comunidades locales 5. Manejo Forestal 6. Bolivia 7. Brasil 8. Costa Rica 9. Guatemala 10. Honduras 11. Nicaragua 12. América Latina I. Ferroukhi, Lyès II. CIFOR III. IDRC 1. Decentralization 2. Local Government 3. Municipalities 4. Communities 5. Forest Management 6. Bolivia 7. Brazil 8. Costa Rica 9. Guatemala 10. Honduras 11. Nicaragua 12. Latin America I. Ferroukhi, Lyès II. CIFOR III. IDRC © Center for International Forestry Research 2003 All rights reserved. Published in 2003 Layout, Printing and Binding: Mundo Creativo, San José, Costa Rica Cover design: Douglas Calderón L. Translation: Judy Butler Technical editing: Elizabeth Mora Printed in Costa Rica 2 3 Municipal Forest Management in Latin America Municipal Forest Management in Latin America ACKNOWLEDGEMENTS PREFACE The authors would like to thank all those who, in a great spirit of collaboration, shared their Among the major political and economic trends that have been evolving in Latin America perceptions, knowledge and information with us to make the preparation of this book possible. in recent years, the emergence of municipal governments as frontline actors stands out. This has been the result of a convergence of democratic and civic movements, as well as of the We especially thank those who were essential to organizing the project that culminated in the fiscal crisis, the central governments’ lack of legitimacy and the search for more efficient book: David Kaimowitz, Alexander Kastl, Daniel Buckles, Bill Carman, Manuel Paveri, Katherine public service provision. Warner, Ivo Bockor, Gregor Fischenish, Ivan Angulo Chacon and Silvia Chaves Quesada. We also appreciate the valuable contribution of all the institutions that financially supported or T he stre ng t he n i ng of mu n icipal go v e r n me nts has stro ng implic a t io ns for fo re s t collaborated in the research that helped the authors prepare their chapters: the International management. Municipal governments are increasingly involved in forestry issues: they grant Center for Forestry Research (CIFOR), the International Development Research Centre (IDRC), the permits, charge taxes, administer their own forests, create parks, prohibit activities, plant United Nations Food and Agriculture Organization (FAO), German Technical Cooperation (GTZ), the trees and take sides in conflicts. Some of these activities form part of the municipal Canadian International Development Agency (CIDA), the Swedish International Development governments’ daily tasks, but in many other cases, the governments act in response to Age ncy (SIDA), the Inte r - A me r i can Developme nt Bank (IDB), the British Departme nt fo r situations that crop up, such as conflicts, environmental crises and political events. They International Development (DfID), the Center for Environmental and Natural Resource Law also implement non-forest activities that have a strong impact on forest resources, including (CEDARENA), the Sustainable Forest Management Project (BOLFOR), the Center of Labor and road construction, the creation of agricultural credit programs and soil use planning. Agrarian Development Studies (CEDLA), the TIERRA Foundation, the Forest Superintendence of Bolivia (SF), the Federal University of Rio Grande do Norte (UFRN), the Acre Research and Extension Part of the municipal governments’ growing leadership role in forestry issues is an explicit Group in Agro-forestry Systems (PESACRE), the Trans-Amazon Agro-ecological Laboratory (LAET), product of national policies to decentralize natural resource management. Nonetheless, the Amazonia Environmental Research Institute (IPAM), the Peasant Forestry Development Program municipal governments in many places have taken the initiative without either the support (DECAFOR), the FAO’s Forests, Trees and People’s Programme (FAO/FTPP), the Consultants for or the blessing of the central government, sometimes even illegally. The fact that municipal Sustainable Development (CODERSA), The Community and Municipal Forests Project (BOSCOM), the Latin American Social Sciences Faculty (FLACSO), the PROTIERRA Project of the Nicaraguan Institute governments now have more political power and greater financial and human resources—and of Municipal Promotion (INIFOM) and the Forestry Project of the Agricultural, Livestock and Forestry in many countries are now elected rather than named by the central power—means a Ministry (PROFOR). political capital that has allowed them to get involved in new spheres, including forestry and environmental issues, despite not always having a clear mandate to do so. We would also like to thank all of the people who reviewed the different chapters and/or offered information that helped enrich the material presented in this book. In particular we thank the This book represents the first serious attempt to analyze recent experiences of municipal following for their support: Aroldo Santos Zelaya, Arnulfo Cruz Guerrero, Carlos Andrés Zelaya, participation in forest management in Latin America. It is the product of a series of Eduardo Bahr, Gustavo Morales Galindo, Juan Blas Zapata, Luis Torres Pérez, Konrad Uberhöl, Dennis investigations in Bolivia, Brazil, Costa Rica, Guatemala, Honduras and Nicaragua in which Buteau, Edwin Mateo Molina, Martha Klein, Orfilia Pineda, Roberto Vallejo Larios, Gilbert Canet more than 30 national and international researchers participated. It will unquestionably be Brenes, Eugenia Wo Ching, Pascal Girot, Glenn Galloway, Jorge Rodrígez, Elizabeth Mora, Mynor required reading for anyone concerned with municipal administration and natural resource Barrillas, Timoteo López, Olivier Dubois, Víctor Galvez, Silvel Elias, Krister Anderson, Clark Gibson, management. Hannah Whittman, Thelma Lizzeth Cabrera, Ove Faurby, Andrew Blackwell, René Mendoza, Juana Ortega, Erwin Aguilera, Rudy Guzmán, Arturo Moscoso, Ovidio Roca, Thelmo Muñoz, José Luis de The studies paint a very diverse reality since each municipality has its own particularities. Urioste, Carolina Almeida de Souza, José Clodoaldo Barbosa, Iliana Salgado, Carla Rocha, Magna In fact, it is to be expected that much more complex situations will occur if each municipal Cunha, Guilhermina Cayres, Doerte Sagebart, Ana Cristina de Barros, Vilma Neves