The Participatory Forest Management Project

(last updated August 2007)

Phase I:          July 2002 to June 2007
Phase II:         July 2007 to June 2012
Budget:           CHF 4,500,000 for Phase I, and CHF 3,230,000 for Phase II
Partner:          Social Forestry Division, Department of Forests, Ministry of Agriculture,Thimphu.
Contact:          Hans J.J. Beukeboom, hansbeuk@druknet.bt or hans.beukeboom@helvetas.org

Content

Background on Phase I 
Achievements of Phase I
Main Lessons Learned in Phase I
Goals, Outcomes and Main Activities of PFMP Phase II
Key Project Documents                    

Background on Phase I

The first phase of Participatory Forest Management Project (PFMP) was for a five-year project (July 2002 to June 2007) financed by the Swiss Agency for Development and Cooperation (SDC) and the Royal Government of Bhutan and implemented by Helvetas (Swiss Association for International Cooperation).  The project goal of Phase I was to contribute to sustainable forest management and improve rural livelihoods in Bhutan by strengthening the capacity of local communities to utilize and conserve forest resources, with an emphasis on poverty alleviation and the equitable distribution of benefits.

Within the scope of this overall goal the project pursued for Phase I were three immediate objectives.

• To strengthen the capacity of the Ministry of Agriculture to support dzongkhag (district) forestry programmes. The main focus for capacity building is the newly established Social Forestry Division (SFD), which has the mandate for providing technical support to the dzongkhag forestry services. A second focus is for the Natural Resources Training Institute, which provides in-service training to dzongkhag staff;
• To support the implementation of Participatory Forestry Management (PFM) activities in seven dzongkhags (now 14), aiming at a sustainable improvement of the living conditions in the communities; and
• To increase the capacity of the Department of Forests to monitor and evaluate PFM activities at all levels – geog, dzongkhag and national.

The mid-term evaluation of December 2004 and the review in November 2006 confirmed the very positive results.

Achievements of Phase I

Main achievements of the project implementation are:

Capacity Building

• The PG program has strengthened the extension capacity and is instrumental for the needed attitude change. Ten students from England and Australia and 7 from the PG course at Kasetsart University in Bangkok returned from their Post Graduate (PG) Course to their original posting and another 7 PG Diploma students are under going the Post Graduate course at Kasetsart University, Thailand. In total 24 PG students were supported.
• In-service trainings designed and implemented on:

      o    Community and Private Forestry Management Planning
o    Conflict Management and Facilitation
o    GPS/GIS
o    Silviculture
o    Forest-based Enterprise Development for Sustainable Livelihoods

Based on the in-service training programs the forestry extension service can perform their duties in an efficient way and so assist the communities. The in-service trainings are conducted in collaboration with many partners based on the identified training needs studies regularly conducted.

• Silviculture training materials were produced. So far there is a lack of appropriate training materials and the producing of materials makes the farmer trainings better and also motivate the extension service to conduct the trainings and use these materials.

Implementation of Participatory Forest Management

• The revised forestry rules 2006 are positive towards community forestry.

• The project area was extended from originally 7 to 16 Dzongkhags and will be a national project in Phase II.

• By the end of June 2007, 46 Community Forests (CF) (see table1) have been approved and the time needed to establish new CFs is getting shorter (originally 9 months, now 3 to 5 months). The CFs are implemented according to the approved management plans and in close consultation with the responsible forest extension staff.

• Community Forestry and Private Forestry Manual developed; These manuals will assist the forestry extension service to introduce and implement Community and Private Forestry as the manuals describe the process step by step and also provide the methodologies on how to do so.
  Community Forestry Manual, Part 1
  Community Forestry Manual, Part 2
  Community Forestry Manual, Part 3
  Community Forestry Manual, Part 4

• 97 Private Forestry Certificates have been issued and many more are in process. After the certificate has been issued the land owner can use the timber as per plan or as per rules.

• First Community Forestry Management Group (CFMG) Workshop was conducted and many good recommendations were made by the CFMG as well as the extension agents. The recommendations are used for further improving and adjusting the community forestry program. The formation of a CFMG is not only regarded as a tool beneficial for forestry but also as a participatory forum to discuss how to improve rural income, local development, local governance, and social events.

• Community Forestry activities at dzongkhag and geog level, e.g.:

• CF initiation, planning and implementation

• Farmers training

• Farmers study tours

With the support for the dzongkhag and geog activities the community forestry program has taken off and the communities are strengthened in their capacity of implementation the management plan:

• Provided technical and office equipment to the geog and dzongkhag offices, so they have the necessary infrastructure to implement field programs and provide assistance to the community as well as provide feedback to the Department of Forests.

• Immediate economic benefits from the CFs are currently limited, and the project has so far limited documentation on the (economic) impact of the CF contribution to income generation. This is partly because the commercialization of rural activities is a relatively new shift form the long tradition of subsistence-based farming. Additionally, the initial CFs had almost no potential for sale of forest products as the early CFs were mainly degraded areas, or too small or plantations. The more recent established CFs are better or well stocked and some focused on Non Wood Forest Products. Sale of products will start in 2007.

• No survey has been conducted on the equitable distribution of benefits but this issue is addressed in the by-laws of the CFMGs and the case study on gender and equity shows the positive aspects and the areas that need further attention.

Monitoring and Evaluation

• Crucial for measuring and assessing the project impact was the first training in analytical skills and case study writing, which resulted in 8 published case studies in June 2006. 9 new topics for case studies have been published in June 2007. The authors are now more confident about writing their experience and produce logical argued cases and critically analyze data. With the case studies good information is made available decision makers so they can argue based on information. Also other studies were conducted to assess the progress and the impacts (see list of PFMP Reports)

• The project supported the establishment of a FIMS. The database is now operational. FIMS will provide good information on PFM activities.

• Training on the new Forest Information Management System. The trainees now understand the new system and will be able to update the information and provide the information which is required to have an updated and dynamic database;

Goals, Outcomes and Main Activities of PFMP Phase II
Based on the frame conditions of Royal Government of Bhutan (10th FYP) and the prioritization of the planning-workshop, the overall goal and program outcomes for PFMP Phase II were defined. Key activities related to the objectives are given in the Log Frame of outcomes and activities.

The goal of the second phase, 2007-2012:
“To contribute to the improvement of rural livelihoods and their natural environment by empowering local communities and strengthen their capacity to manage forest resources on a sustainable basis.”

The project will focus on community forestry replication and expansion while building on good practices and experiences from Phase I and focusing more attention on the economic contributions from CFs and the equitable participation and distribution of benefits. The expansion of the program will increasingly be funded by the RGoB. For sustainable implementation and management at the community level and to establish a sound technical support system, capacity development at all levels will be continued. Within the decentralization policy of the RGoB, the strengthening of civil society organizations depends on locally based institutions, such as the CFMGs. Therefore, within the scope of the project, the support for the development and strengthening of CFMGs for the specific purpose of forest resource management but also as a space for addressing communal priorities beyond forestry and promoting a sense of legal rights and responsibilities in managing common resources will be promoted. With plenty of examples in place and a renewed awareness campaign, the request for CFs is expected to further increase.

The project has three major outcomes:

Outcome 1: An enabling environment to establish 300 CFs throughout the country based on demands received from communities and technical feasibility.
The fast establishment of 1 or 2 “model” CFs in each district shall increase the awareness and further promote community forestry. As the potential CFMGs will visit other already existing CFs, it is important that model CFs are selected which are not too far from the road and can show the benefits of community forestry as well as the processes of the establishment. The target in the draft 10th FYP is 300 CFs, distributed over the country. Table 2 shows the potential for the next decade after an initial study done by Social Forestry Division. Establishment processes will have to be streamlined and a revision of the manuals will be necessary to achieve such targets. The collaboration between extension and territorial forestry (including park) staff needs to be further improved. Gender and equity issues and accountability of the CFMGs need to be addressed (through in-service training, awareness during the CFMG formations, including in the revised CF manual with assistance from local consultants when needed). CFMG committee members shall get trained in order to improve the implementation. In country study tours will help to exchange views and experiences between well established and newly coming up CFs of different regions. The increased capacity of SFD and the Forestry Staff will enable them to plan, implement and backstop the CF program, and therefore it is important that capacity building takes place at an early stage. Aspects of good governance and decentralization will be important while dealing with the CFMGs as well as dealing with the GFES. If any shortcomings are identified, a policy dialogue will be initiated to see how the constraints can be addressed (including the possible lack of incentives for degraded areas).

Outcome 2: Capacity built at all levels to ensure sustainability.
The target on CFMG level is to have trained committed members, competent in managing all CF aspects and capable to recognize and manage social aspects. This will be mainly done in collaboration with RDT. This will also empower the rural communities and ensure participatory decision making and thus indirectly contributes to good governance. For specialized skills training (e.g. silviculture, chainsaw), institutes will be identified.
Regional associations will be stimulated to increase market access. At community level, it will be ensured that no duplication will take place while forming groups.
DzFOs and GFESs shall get the necessary training to be able to efficiently support CFMGs and to train CFMG members and, whenever appropriate, territorial forestry and park staff will be included as participants. On DoF/SFD level, the target is to reach sufficient capacity to backstop the CF activities.
The in-service training will continue in present and new fields. ToT courses shall be carried out to develop sufficient in-country capacity for conducting future trainings. ToT is important as the GFESs will play a major role in the capacity building and back stopping of the CFMGs, especially for the newly developed in-service training topics (e.g. economic enterprise development, NWFP aspects). ToT is also important for SFD so that they can adequately backstop the DzFS. Close collaboration with training institutions will improve and ensure the quality of these activities. As the newly introduced “position classification system” (PCS) requires formal Bachelor and Master Degree qualifications for Dzongkhag Forestry Sector heads to make them at par with other sector heads, upgrading their education level is necessary. The support for minimum 16 MSc/PG candidates (all one year courses) will contribute to the improved quality of the CF program as well as to the increased capacity to develop the program further. Selected candidates for MSc/PG need to have experience in the field of community forestry, and future posting of the candidates after their studies will have to be in the field of community forestry.

Outcome 3: Community Forestry program contributes to poverty reduction.
The CFMGs are allowed to sell the excess forest products after fulfilling their own needs. In collaboration with other organizations (AMEPP, RDI, MTI, CBNRM, FRDD), the project will actively stimulate and support the development of timber and NWFP products, the local value added processing of such products and the market accessibility for such products. Collaboration with private sector, including FDCL and Bio Bhutan will be encouraged. Exchange visits to neighbouring countries will help to learn from experiences made elsewhere. For degraded CFs, options will be explored on how they can benefit economically. An economic analysis (including time investment, financial aspects etc.) of the CF will be introduced and will become a part of the CF management plan. Many  (estimated over 50%) of the CFs will be able to sell products (timber and NWFP) but not establish a business out of this as the sale will be season bound, small scale and not involve further processing. CFMGs could combine their business and they establish an enterprise which includes employment opportunities, tax payments, etc. At the moment, it is difficult to make an economic analysis as the sale of products is just starting and so very limited data is available.

Key Project Documents

Copies of these case studies are available with CoRBB or  SFD or can be seen or copied from the web: www.moa.gov.bt/moa/downloads/downloads.php, or www.recoftc.org/site/index.php?id=520.  Please also contact the following email address for the documents: hansbeuk@druknet.bt or helvetas@druknet.bt

CF manual (4 parts)
PF manual

Case Studies 2006 (8 studies)

Community Forestry Contributes to the National and Millennium Goals Without Compromising the Forestry Policy!
By Karma J. Temphel and Hans J.J. Beukeboom. June 2006.

Equity and Traditional Irrigation Water Sharing Systems in Lingmutey Chhu Watershed.
By Yeshy and Aita K. Bhujel. June 2006.

Will the Sale of Illicium griffithii Reduce Poverty in Aja Nye and Yabrang Communities?By Prabhat Kumar Mukhia, Sigyel Delma Tangbi and Kesang Droelkar Tshering. June 2006.

Entire Rural Wood Supply from Community Forests: A Challenging Mission.
By Sonam Phuntsho and Mani Sangye. June 2006

Bridging the Knowledge: A Journey into Local Experience for Community-Based Management of Cane and Yula.
By Tshewang Dorji and Robin aus der Beek. June 2006.

Crushing the Bone: Minimizing Grazing Conflicts in Community Tsamdro. A Case Study from Dhur Village, Choekhor Geog, Bumthang.
By Kelzang Wangchuk, Karma Dorji and Ugyen Lhendup. June 2006

Gender and Equity: A Challenge in Community Forestry.
By Kinzang Namgay and Thubten Sonam. June 2006.

Is Community Forestry Making a Difference to Rural Communities? A Comparative Study of Three Community Forests in Mongar Dzongkhag.
By Rinchen Wangdi and Nima Tshering. June 2006.

Abstracts of the Case Studies 2007

A Series of Case Studies on Community-based Forestry and Natural Resources Management in Bhutan, 2007

After the successful 8 case studies of the Community-based Forestry and Natural Resources Management in Bhutan, 2006 series, PFMP in collaboration with CBNRM have recently concluded the 2007 series which produced 9 interesting case studies on a wide range of relevant topics. It is expected that these case studies will further enhance the implementation of Community-based Forestry and Natural Resources management in Bhutan. It is also hoped that other practitioners will be stimulated to document their own experiences!

The following case studies were produced:

Understanding the Challenges Facing Extension Agents Working in RNR Extension
By Dendup Tshering, Dil Maya Rai and Samdrup Rigyal

Renewable Natural Resource (RNR) extension services in Bhutan play a vital role in uplifting the livelihoods of 69% of the rural population whom depend on agriculture and related activities. Extension agents are posted in the field to impart extension services to the farmers. This study aims to bridge gaps which negatively impact on the effective delivery of extension services by creating a better understanding of all the stakeholders involved. To do this the study explored some of the underlying challenges faced by extension agents while delivering their services. Some of the key problems identified and discussed are unclear terms of references, weak monitoring and evaluation mechanisms, inadequate resources, insufficient support from local government bodies, inactive participation from people in development programmes, lack of proper recognition for meritorious services, adhoc activities of extension agents, wide extension coverage and lack of technical competency of extension agents. Recommendations for mitigating these problems include preparation of terms of references in direct consultation with field workers, creation of monitoring teams at various levels of the Ministry of Agriculture, maintenance of a proper inventory of facilities in extension centres, increased publicity of development programmes among people, designing programmes which are more relevant for farmers, provision of merit-based opportunities, creation of a special task force for adhoc activities, review of CNR curriculum and standard extension staff deployment. The study also observes the recurrent nature of extension problems despite measures to address them. It is hoped that reflecting objectively on these issues could help in overcoming the challenges facing extension agents and in turn improve their efficiency and effectiveness for delivering services.

Participatory Watershed Management Planning for Sustainable Resource Management - A Case Study from Lingmutey Chhu and Radhi watersheds
By Purna B. Chhetri, Purna B. Gurung and Gyenbo Dorji

The paradigm shift in natural resource management in the country entails a shift in the planning process.  The participatory multi-stakeholder planning process is one of the accepted planning tools recently being used in the preparation of integrated watershed management plans in Bhutan. It is recognised that such planning processes are essential for the development of an efficient and sustainable watershed management plan. It is being implemented in the Radhi and Lingmutey Chhu watersheds. In this study, the reasons for using multi-stakeholder processes and the steps followed during implementation of the watershed management plan will be highlighted.  It is a tedious process but it is inevitable for planning holistic watershed management.

Bamboo: The Golden Opportunity for Wamanang
By Karma Dorji and Tenzin

This paper highlights the group formation process and steps undertaken for the development of the management plan for bamboo (Borinda grossa) and the group bylaws to support the rural livelihood of the Wamanang community in the multiple and buffer zones of the Bumdelling Wildlife Sanctuary.   The main purpose of this paper is to show the positive impact of the management plan for bamboo on community development and the generation of income both at community and household levels. Based on sustainable harvesting amounts defined through a participatory inventory of the resource, annually the group can earn up to about Nu. 540,000 from the sale of bamboo culms.  At the household level, farmers can earn about Nu. 200 per day by producing and selling mats and baskets. This is almost double the income they would generate through daily wages from labour contribution to government work. However, there is even much more potential if new technologies for product development and diversification are introduced.
Therefore, the authors believe that Borinda grossa has good potential to meet farming subsistence needs and income generation needs, without compromising the resource’s sustainability.

Timber Sales from Community Forests is Possible - A Case Study on Two Community Forests from Mongar and Bumthang
By Shacha Dorji and Sonam Phuntsho

Due to decentralisation policies in Bhutan, government reserved forests are increasingly being managed as community forestry by rural communities. This has been increasing at a fast pace over the last few years. Community Forest Management Groups are allowed not only to meet their basic forest resource needs, but also to sell surplus trees after meeting certain requirements. These include contributions to a community fund to meet the expenses of community forest development and other activities of the community. The prevailing Forest and Nature Conservation Rules 2006, have clear provisions on timber sales from community forestry. Community forests need to have a separate passing hammer for the movement of sold timber and a lack of this passing hammer has been noted as a main factor for an inability to sell timber from CF. This study shows that several options for sale (auction and direct sale) are possible and would benefit the CFMG. This study was carried out to assess if sales of timber from community forests is possible and argues that a clarified process for the sale of timber can greatly help community forest management groups to generate income and assist community development.

The Challenge of Degraded Land Management through Private Forestry - The Motivation of a Farmers Group in the Radhi Watershed
By Pema Tenzin and Tashi

Land management is one of the arising issues in Bhutan in the 21st century. Amongst several ways and means of combating land management issues, private forestry development is one which addresses the issue. This case study discusses the challenges of land management through the development of the Chema Horticulture Development Group and their desire to collaboratively develop a private forestry program. The case study also suggests to policy makers and donors ways to solve the problem of land management through this approach. However the group faces challenges, such as limited financial support for group activities, a reliance on outside interventions, limited support from the geog administration and an inability to develop a group private forestry management plan.

Quality of Community Forest Management Plans - Towards Efficient Implementation of the Community Forestry Programme
By Karma Tempa, Tshewang Dorji and Bendicht Urech

The quality of community forest management plans (CFMP) forms the backbone for the successful implementation of community forestry (CF) in Bhutan. Therefore, this case study assesses the quality and implementation of CFMPs. To achieve this, different management plans were reviewed and field studies were carried out. The findings revealed that 73% of current management plans are of medium quality. The field results showed that implementation is based on the management plans. However, the detail assessment indicates some improvement is needed in the areas of setting objectives, non wood forest products (NWFP) management and monitoring. If there is more active participation by communities in preparing management plans and a better cooperation among concerned stakeholders, it will lead to an improvement of the quality and implementation of CFMPs. 

Beyond This, What..? Can the Sustainable Harvesting and Marketing of Incense Plants Contribute to the Livelihood of the Laya People?
By Kinga Namgay, Sonam Thinley and Sangay Tenzin

Incense plants contribute 14% of the total income of the Layaps. Of the 14 species of incense plants found in the Laya area, five common species contribute 94% of the income from the incense products. Currently, the Layaps follow traditional methods of collection, drying and packaging. Most of these incense products are sold in Thimphu.  This case study explores the possibility of increasing economic benefits through the sustainable collection of incense plants and marketing of incense products. The case study found that it is possible to maintain the status quo of the sustainable harvestable quantity. A management plan is seen as important to ensure sustainable utilisation of the resource and for long-term economic security without compromising the conservation goals of the national park in which the Laya area is located.

CHIRATA: A Medicinal Plant Rescued by Community Forestry
By Kuenzang Norbu and Jigme Gyeltshen

Chirata is an important species for income generation in Shingkhar Lauri and provides about 40% of the annual income for the households. This document highlights the importance of local knowledge to develop a proper management plan for the sustainable management of this species and in order to revert past trends of degradation.   This paper also highlights the significance of the management plan, in terms of proper resource assessment, improved management guidelines, establishment of regeneration trials, distribution of collection areas and improved governance and marketing.  The information presented aims to support forestry professionals who are working with the communities to initiate similar activities in their areas. It shows the main challenges faced during the community mobilisation process and the development of the management plan.

Dynamics of Different Ethno-linguistic Groups - A Case Study of Three Community Forests
By Karma J. Temphel and Tenzin Lhendup

The Community Forestry (CF) Programme in Bhutan is expanding and at present 42 CFs have been handed over to the community. Community Forestry has created positive processes by allowing different ethno-linguistic groups to work together to manage natural resources, and as a result, CF has built social capital.  The social capital of the Community Forestry Management Groups (CFMGs) has improved due to a strong, clear and supportive policy and legal framework. This encourages a better working atmosphere by maintaining transparency, trust and cooperation amongst the members.   The outcomes of these good relationships between the CFMG committee and its members, and their collaborative efforts are; increased resource mobilisation, improved social linkages and direct incomes. It is recommended that social capital should be considered as important as economic and environmental considerations for successful community forestry. For CFMGs that are composed of different ethno-linguistic groups, fair representation at the committee level is essential for decision making, maintaining transparency and building trust.   An interesting outcome from this study is the realisation that creating social capital is a continuous process which has tangible economic and environmental benefits. Social capital is a self-perpetuating loop which can support efficient group management and sustainable management of natural resources.

Table 1: Overview of Approved Community Forests (as of June 2007)

Source: Approved Community Forestry Management Plans.

 Table 2: Initial Identified Potential CFs in the next decade