The following is the full text of the Executive Summary of a joint World Bank, UNDP
and FAO mission, representatives of whom visited Cambodia in late 1995.
CAMBODIA'S 11-million hectares of forests, which are among its few developmentally
significant natural resources, are increasingly at risk unless more appropriate policies
and better administration are put in place.
This report reviews the deforestation of over one million hectares and degradation
of over three million hectares that has occurred in Cambodia over the last thirty
years. Current policies risk deepening and accelerating this pattern by repeating
mistakes made in other forest-rich developing countries.
The market-oriented policy reforms advocated in this report could increase yield
government forest revenue in the order of over $100 million per year while better
sustaining these resources and the vital environmental and social services they provide.
Long-term strategic recommendations made in this report include deregulation of log
allocation and trade, significantly higher timber royalties, and improved technical
and policy oversight of the sector.
Of immediate concern is [the] government's promotion of a capital intensive wood
processing sector through a log export ban, grants of large concession areas and
royalties that represent only one-fifth of economic value.
This program, which appears to have allocated nearly all of the country's commercially
viable timberlands to a small number of concessionaires, rests on a level of timber
exploitation which is likely to be unsustainable and will, in any case, provide inadequate
fiscal returns.
Detailed review of operations proposed by selected concessionaires indicates that
attempting to direct development of value added processing in Cambodia through protection
and subsidies will be costly and inefficient. This report estimates that in terms
of log export revenues foregone, employment creation in wood processing will cost
$18,000 per job per year, far above wages and far above costs in other sectors.
Further, without subsidized raw material, the proposed processing investments are
not financially viable and would not be undertaken without subsidy that would principally
benefit a small number of primarily foreign concessionaires.
It also appears that concessionaires have conducted inadequate resource assessments
and have systematically overestimated timber availability by inappropriately applying
growth and yield coefficients drawn from experience in other countries.
As a result, a serious concern is that realization of concessionaires' large wood
processing investment commitments will create unsustainable demands on the resource
base.
To prevent damage from overcutting, [the] government must undertake special efforts,
starting with strict application of a precautionary approach to logging through its
evaluation process for concession management plans, and continuing through ongoing
monitoring of compliance with concession terms.
Specifically, {the} government should require that logging intensity be restricted
to the established Cambodian standard that implies harvests closer to ten cubic meters
per hectare as opposed to the 50 cubic meters pre hectare or more that has been proposed
by some concessionaires. If limited to sustainable harvest levels, even with subsidized
royalties, concessions are unlikely to be able to operate profitably as planned because
of low conversion rates, poor marketing strategies and high capital costs.
Along with requiring adherence to satisfactory forest management practices [the]
government should also require concessionaires to satisfy the full value of their
investment commitments or should declare concessions in default. In the event of
defaults, [the] government should initiate a new process of concession award based
on guidelines provided in this report, including allocations based on transparent
and competitive bidding subject to minimum appraisals, smaller area awards delinked
from processing investment requirements, deregulation of log exports and more detailed
prior inventories and management planning.
The forest and wood industry promoted under these policies would consist of a greater
number of smaller, more locally-owned firms, utilizing local labor.
It would initially be oriented toward export of unprocessed logs to high value foreign
markets which are now facing severe raw materials supply constraints and therefore
offer a strong market potential. Faced with international market discipline, local
log processors would need to improve efficiency, lower costs and improve quality
to remain competitive and to evolve in the long-term into a viable industrial sector
and source of export earnings.
The report provides estimates of government revenues with and without forest policy
reform and considers the need for technical assistance and institutional strengthening
and development.
Analysis of fiscal implications shows that, as opposed to current revenues of approximately
$20 million per year (which are partly based on logs confiscated from illegal felling
operations), reforms such as auction of concession rights, royalties based on world
prices and rigorous enforcement of environmental regulations, could yield $100 million
annually.
These estimates indicate that government could invest more than $200 million to introduce
these reforms while earning a rate of return in excess of ten percent over the next
thirty years.
Progress in the commercial concession sub-sector must also be linked to an integrated
sectoral development strategy that considers, among others, issues of land allocation,
conservation, the roles of local government and the private sector, indigenous peoples,
wood energy and farm forestry.
To advance this agenda, the report includes a detailed policy matrix which calls
attention to reforms needed to improve the efficiency of resource mobilization in
the sector, to rationalize incentives motivating stakeholders and to improve the
quality of sectoral governance.
Concrete near terms steps, which [the] government can take to compliment policy and
institutional reforms, include accelerated review of draft forestry legislation and
projects aimed at improving forest management planning and practices on a select
number of small existing concessions.
These would aim to test and elaborate on recommendations offered in this report on
establishing sustainable harvest levels, operations monitoring and rent capture.
Government commitment to a consolidated program of sectoral policy reform could be
linked with programmatic and investment support from the World Bank and other agencies.
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