2001年-世界发展银行全球_Lao_PDR_-_Production_Forestry_Policy___Status_and_Issues_for_Dialogue_Volume_1_Main_Report_53页_451kb

Lao PDR Production Forestry Policy Summary

Core Content

Lao PDR's production forestry policy is in need of significant reform to ensure sustainability and effective resource management. Despite the country's vast forest coverage, the sector is facing challenges such as deforestation, illegal logging, and inefficient governance. The report outlines a reform agenda that includes improving forest management, increasing community participation, and controlling illegal logging.

Main Report Overview

Forest Resources and Development

• Forest Coverage: 80% of Lao PDR is forested, with over half being extremely degraded.
• Production Forest Area: 2.5 million hectares are designated as production forests, but they are not mapped, and logging is not confined to these areas.
• Potential Forest Area: Forests with commercial potential may total over 5.6 million hectares.
• Deforestation Rate: Occurs at 0.6-0.8% per year.
• Economic Contribution: Forestry contributes 7-10% of Lao GDP and 15-20% of non-agricultural GDP.
• Rural Economy: Forest exploitation is a key economic activity in rural areas, and non-timber forest products (NTFPs) contribute over half of family income.
• Export Value: Forestry accounts for 34% of total export value and a higher percentage of net foreign exchange.
• Royalties: Forestry royalties have declined from 20% of GOL revenues in the mid-1990s to 5% of all revenues last year. Collection rates are low, around 50%.

Key Issues

• Wood Industry Capacity: Exceeds long-term sustainable Annual Allowable Cut (AAC), but performance has not met expectations.
• Rural Poverty: Wood production has not positively impacted rural poverty and has, in fact, contributed to environmental degradation.
• Legal and Regulatory Framework: Inconsistent and unclear, leading to poor governance and law enforcement.
• State-Owned Enterprises (SOEs): Unaccountable and not monitored, with increasing independence and secrecy.
• Illegal Logging: A major concern, with a lack of effective suppression and monitoring.

Main Recommendations

Improve Forest Management and Utilization

1. Define Forest Management Units (FMUs): Establish specific FMUs and prepare management plans, requiring a clearly defined and mapped national forest estate and management entities.
2. Strengthen Regulatory Apparatus: Complete, clarify, and simplify the legal and regulatory framework, and establish an effective regulatory body.
3. Increase Reliance on Market Approaches: Move away from government intervention in commercial decision-making.
4. Restructure SOEs: Disclose financial audits, discontinue preferential contracts, and improve transparency in logging and market access.

Community Participation in Forestry

1. Clarify Legislative Framework: Establish clear procedures for the expansion of village forestry.
2. Ensure Commercial Autonomy: Allow Village Forestry Associations (VFAs) to conduct full commercial and marketing activities.
3. Improve Land Allocation: Integrate lessons from community forestry pilots into village land allocation to make it more equitable and productive.

Controlling Illegal Logging

1. Prevention: Cease approvals for new primary processing plants, and integrate timber theft prevention into FMU standards.
2. Detection: Establish a forest crime monitoring program to collect data on illegal logging and prioritize suppression efforts.
3. Immediate Actions: Implement the prohibition of licensing new wood processing plants as stipulated in the Prime Minister's Order No. 10/PM/2000.

Governance and Institutional Concerns

• Inconsistencies: In the legislative and regulatory framework.
• SOE Accountability: Lack of public scrutiny and monitoring.
• Decentralization: Could improve forest management, but national control is necessary in areas like biodiversity conservation and revenue collection.
• Law Enforcement: Weak and ineffective, with a lack of transparency and accountability.

Strategic Implications

• Sustainability: Without reform, Lao PDR will not achieve its goal of 60% forest cover by 2020.
• International Collaboration: The Government has expressed willingness to reform, suggesting potential for continued international support.
• Policy Matrix: Highlights key issues and proposed actions for reform, including investment and capacity building needs.

Investment and Capacity Building

• Reform Agenda: Requires a blend of policy reform, capacity building, and investment.
• Partnerships: Continued collaboration with the international community is necessary for sustainable forestry.
• National Consultation: A national process involving key stakeholders is recommended to define policy changes and seek international support.

Conclusion

The report emphasizes the need for a comprehensive and sustainable reform of Lao PDR's production forestry policy. It calls for improved governance, increased community participation, and effective control of illegal logging. The proposed actions are designed to increase public forestry revenues, ensure sustainable resource management, and support rural development through village forestry.