1

Contents1 Introduction........................................................................................................ 1

2 Aim .................................................................................................................. 3

3 PolicyPrinciples................................................................................................. 4

4 GenericGuidelines............................................................................................. 6

Figure1 IndigenousForestTypesofSouthAfrica.................................................. 2

BOX1: NATIONALPERSPECTIVE...................................................................... 2

BOX2: THELISTINGOFTHREATENEDANDPROTECTEDFOREST ECOSYSTEMS......................................................................................... 12

Definitions .................................................................................................................. 13

Appendices.................................................................................................................. 15

1

TwentysixnationalforesttypesoccurinSouthAfrica,includingthreeazonaltypesthatoccurinsmallorlinearlocations,likeriverineforestsandmangroveforest.Thereareavarietyof

threatstotheforests,causinglossordeteriorationofforesthabitatsandconsequentlylossofbiodiversityaswell.Someforesttypesandforestpatchesareundergreaterthreatthanothers.Duringthepastcentury,theforestsnearthecoast(suchasKwaZuluNatalCoastalForestandTranskeiCoastalForesttypes)havebeenundermostpressureduetotheexpansionoffarmlandandtodevelopment.Thesearetheverysameforesttypesundergreatestpressurefromdevelopmentandotheractivitiessuchasbarkharvesting.Thispressure,bothfromlegalandillegaldevelopments,iscauseforgreatconcernfromaforestconservationperspective.

ThevariousconservationplanningprogrammesoftheDepartmentofAgriculture,ForestryandFisheries(DAFF)andprovincialauthoritiesrecognisetheseforests(particularlythecoastalones)asofgreatconservationsignificance,especiallyduetotheirexceptionalbiodiversityandecosystemservices,theirdynamicnatureandsensitivitytodisturbance.Itwasfurtherrecognisedthattheconflictbetweendevelopmentpressureandconservationneedsrequiresurgentaction.Environmentalofficersinsomemunicipalitiesarelikewiseconcerned.

Asetofpolicyprinciplesandguidelinesandamemorandumofunderstandingweredevelopedduring2006and2007byaworkinggroupconsistingofofficialsfromDAFF,EKZNW,DepartmentofAgricultureandEnvironmentalAffairs(DAEA)andEthekwiniMunicipalitytopromotebetterco-operativecontroloverdevelopmentaffectingnaturalforeststhroughouttheKwaZulu-Natalprovince.AtameetingoftheIntegratedEnvironmentalManagementSteeringCommitteeofthepreviousDepartmentofWaterAffairsandForestryinJuly2007itwasdecidedthatageneralversionoftheguidelinesbedevelopedtoserveasthebasisfordecisionsandcommentsmadebyforestrystaffinallregionswhendealingwithdevelopmentproposals,landuseplanningandenvironmentalimpactassessmentsaffectingnaturalforests.

Assuch,thepolicyandguidelinesmustaidtheproperimplementationofexistinglegislation,especiallytheNationalForestsActNo84of1998.TheguidelinesarethereforeanexpressionofhowtheDAFFmandateshavetobeexercisedinthisregard,inco-operationwithrelevantauthorities.Italsoservestoinform,andtodispeluncertaintiesaboutwhatpositioncanandmustbetakenregardinganydecisionsondevelopmentthatmayaffectnaturalforests.Suchuncertainties,andthelackofco-operationorcommunicationbetweenthevariousauthoritiesinvolved,haveoftenledtopoordecisionsbeingmade,tothedetrimentofforestconservation.Ifwearetoprotecttheremainingforests,thecurrentmodusoperandihastochange,andthestrongexistinglegislationmustbeusedtoeffectthatprotection.

TheNationalForestsActof1998(asamended)providesthestrongestandmostcomprehensivelegislationandmandatefortheprotectionofallnaturalforestsinSouthAfrica.TheprinciplesoftheActinSection3stateclearlythat“…natural forests may not be destroyed save in exceptional circumstances where, in the opinion of the Minister, a proposed new land use is preferable in terms of its economic, social or environmental benefits”.Thisprescribesthatnodevelopmentaffectingforestsmaybeallowedunless“exceptional circumstances”canbeproven.Section7oftheActprohibitsthecutting,disturbance,destructionorremovalofanyindigenouslivingordeadtreeinaforestwithoutalicence,whileSection15placesasimilarprohibitiononprotectedtreespecieslistedundertheAct,someofwhicharealsoforestspecies.

ThesystematicconservationplanningprocessundertakenbyDAFFsetsconservationtargetsforeachforesttype(percentageofeachforesttypetobeincludedinprotectedareas–currentandfuture)andidentifiespriorityforestpatcheswhichshouldmakeupthosepercentages.Thiscyclicprocessisdoneinco-operationwiththeSouthAfricanNationalBiodiversityInstitute(SANBI),whichalsoinvolvestheidentificationofthreatenedforestecosystems(foresttypesandpatches)tobelistedundertheNationalEnvironmentalManagementBiodiversityActNo10of2004,(NEMBA).

ForesttypesandforestpatcheslistedasthreatenedecosystemshavetobetakenintoaccountintheIntegratedDevelopmentPlans(IDPs)oflocalauthorities,andanyintendedactivitiesresultinginthelossofanyamountoflandareaoftheselistedforestsareaswillthenrequireatleastabasicassessmentunderthenewEnvironmentalImpactAssessmentRegulations(NoR385R386andR387of21April2006).IntermsoftheNationalForestsActof1998allnaturalforestsareimportantforconservationfromanationalperspective(seeBox1),butthoselistedunderNEMBA(CriticallyEndangeredandEndangered)mustreceivehighestpriorityforprotection,whetherintheplanningofnewconservationareas,orcontrolofdevelopmentandlandusechange.

Thepolicyprinciplesandguidelinesoutlinedhereareinkeepingwithnationalandprovinciallegislationrelatingtodevelopmentcontrolandtheprotectionofforests,especiallytheNationalForestsActNo.84of1998,theNationalEnvironmentalManagementActNo.107of1998andthevariousprovincialenvironmentalordinancesandlaws.Consequently,theprinciplesandguidelinesarealsoinlinewiththemandatesoftherelevantpublicagencies,mostnotablytheDepartmentofWaterAffairs,DepartmentofAgriculture,ForestryandFisheries,DepartmentofEnvironmentalAffairsandtheprovincialconservationagencies.Thesemandatesarealsolinkedtointernationalobligations,suchascompliancewiththeConventiononBiodiversity,whichSouthAfricaratifiedin1995.

1 Introduction

2

BOX 1: NATIONAL PERSPECTIVEThenaturalforestsofSouthAfricaarethesmallestofitssevenbiomes,coveringlessthan500000hectares(muchlessthanonepercent)ofitslandsurface.Yetthisbiomehasthehighestdiversityofplantspeciesperunitarea(418speciesperhacomparedto98speciesperhafortheFynbos).Naturalforestcanthereforemakeanimportantcontributiontowardsreachingnationalbiodiversityconservationtargetsinprioritisingareasforprotection,andthisisrecognisedintheconservationplanningprogrammesoftheDepartmentofAgriculture,ForestryandFisheries(DAFF),SouthAfricanNationalBiodiversityInstituteandothernationalandprovincialconservationagencies.

Theseforestsalsoplayimportantrolesintheenvironmentascarbonsinks,inthefunctioningofwatercatchments,erosioncontrolandprovidingresourcesonwhichthesurvivalofmanyruralhouseholdsdepend.Theforestsandtheirsettingsareknownfortheirbeauty,andofferincreasingpotentialforecotourism,andnon-consumptivelivelihoodopportunitiesforthepoor.Itisfurthermorethemostfragmentedbiome,consistingofmorethan16000forestpatchesabovethesizeof2haofwhichthemajorityislessthan10hainsize(whichgreatlyincreasesitsvulnerabilitytohuman-inducedimpacts).Thesepatchesoccurscatteredinthehighrainfallareasoftheeasternpartsofthecountry,fromthenorthernborderwithZimbabwetotheCapePeninsula.Theseareasalsohappentobethemostdenselypopulated,andtheweightofhumanactivitiessuchascoastaldevelopmentandharvestingofresourcesforcommercialandsubsistenceuse,placetheforestsunderseriousthreat.ThatiswhytheNationalForestsAct,1998,providesfortheprotectionofthetotalnaturalforestbiome.

Naturalforestshavebeencategorisedinto24nationalforeststypesinacomprehensivestudydonebytheCSIRforDAFFfrom2002to2003(twomoreforesttypeswereidentifiedsincethen).Eachoftheseforesttypeshasauniqueforeststructureandcombinationoffaunaandflora,determinedbysiteconditionssuchasheightabovesealevel,rainfall,topographyetc.Theycanthereforeserveasindicatorsorsurrogatesofbiodiversity(inotherwords,becauseeachforesttypehasitsownuniquehabitatconditionsanddiversityofspecies,protectingrepresentativesamplesofallforesttypeswillaidinprotectingasmanyforestspeciesaspossible).Yetthereisvariationevenwithinthesenationalforesttypes,whichcouldberefinedbyidentifyingforestsub-types.Suchsub-typeshavebeenidentifiedforafewforesttypes,andformthebasisformanagementprescriptions.DAFFiscurrentlyrefiningitsnationalprotectedareaplanningbyidentifyingforestsub-types,whichintheendwillformthebasisforarefinedscaleofprotectedareaplanning.

Conservationisafieldofconcurrentcompetencebetweennationalandprovincialgovernment,withtheNationalForestsActof1998providingoverallprotectionfornaturalforests,supportedbyprovincialmandatesandlegislation.Localauthoritiesalsohaveanactiveroletoplayinforestprotection,especiallyinlanduseplanninganddevelopmentcontrol,aswellassettingasideandmanaginglocalprotectedareasandnaturalopenspaces.Protectionofforeststhereforehastobereflectedatalllevelsofgovernment,andmustbeaccountedforintheenvironmentalimpactassessmentandplanningprocesses.Theseauthorities,especiallyatthenationalandprovinciallevel,areactingastrusteesfortheprotectionofnaturalforestsonbehalfofallcitizensofcurrentandfuturegenerations.Thetrusteeshipalsoextendstotheglobalcommunity,asexpressedbytheparticipationofSouthAfricaininternationalforaandbytheadoptionorratificationofinternationalagreementsandconventions.TheseincludetheAgenda21globalprogrammeforsustainabledevelopmentadoptedattheEarthSummitin1992,andtheratificationoftheConventiononBiodiversity(1995).

* PleasenotethattwonewforesttypeshavebeendiscoveredintheKrugerNationalPark (DryIronwoodForestandNwambyiaSandForest)sincetheabovemapwaspublished.

Figure 1

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Theaimofthepolicyprinciplesandguidelinesare:

2.1 ToensuretheeffectiveprotectionandsustainabilityofnaturalforeststhroughpropercontroloverdevelopmentandlandusechangeaffectingforestsinSouthAfricainaco-operativemannerinallregions,andaccordingtotheDAFFmandatesundertheNationalForestsActof1998;

2.2 TheeffectiveimplementationofcurrentenvironmentallegislationpertainingtodevelopmentaffectingnaturalforestsandassociatedecosystemsinSouthAfrica;

2.3 Toserveasthebasisfordecision-makingwithinDAFFandensureauniformapproachbydecision-makerstothecontrolofdevelopmentaffectingforests.

___________________________________________________________________________________________________1 Forestdestructionherereferstoanyactionthatmaycausethetotallossofaforestecosystem,whetherawholeforestoronlypartofitorwhetherinamatureordevelopingstage, infavourofanewlanduse.

2 Aim

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Theseprinciplesshouldnotbeconsideredinisolationfromeachother,butasaninterrelatedwhole.Theprinciplesandguidelinesapplyequallytoalldecision-makersandallproponentsoflandusechangeordevelopment,andtoallcircumstanceswheredevelopmentaffectnaturalforests.

AlldecisionstakenbyDAFFofficialsonthecontrolofdevelopmentaffectingnaturalforestsshouldadheretotheseprinciples.Theprinciplesapplynotonlytoactivitiesanddevelopmentwithinforests,butalsoadjacenttoforests,asthesemayaffectforestsandtheireco-tonehabitats.

3.1 TheprinciplesforsustainableforestmanagementintheNationalForestsActof1998(NFA)mustbeupheld,including:

• Naturalforestsmustnotbedestroyedsaveinexceptionalcircumstances;

• Forestsmustbedevelopedandmanagedsoasto:

- conservebiologicaldiversity,ecosystemsandhabitats;

- sustainthepotentialyieldoftheireconomic,socialandenvironmentalbenefits;

- promotetheirhealthandvitality;

- conservenaturalresources,especiallysoilandwater;

- conserveheritageresourcesandpromoteaesthetic,culturalandspiritualvalues;

3.2 ApplicationoftheNFAprinciplethatnaturalforestsmaynotbedestroyedsaveinexceptionalcircumstancesmustbeappliedinastrictandconservativemanner,aimedatprotectingforestsasarareandsensitivebiome.Exceptionalcircumstancemustbeproven(refertocriterium4.3(d)p8).Theapplicationofthisprinciplemustbeevenstricterforforesttypeslistedasendangeredorcriticallyendangered;

3.3 Applicantsareaccountableforthepotentialimpactsandactivitiesbeingundertakenaswellasmanagingtheimpacts;

3.4 Decision-makersareaccountablefordecisionsthatmayimpactonforests;

3.5 Decisionsonthecontrolofanydevelopmentaffectingforests,mustbetakeninaco-operativemanner,through

properconsultationwiththerelevantauthoritiesatalllevelsofgovernmentwiththemandateorjurisdictionrelatingtothatparticulardevelopmentorforest;

3.6 Theviewpointsofallstakeholdersonadevelopmentproposalmustbeconsideredindecision-making,andtheapplicantshouldbeencouragedtoexploresuggestedalternativesandtrytoachieveaworkablesolutionthatwouldnotcompromiseanyoftheseprinciples;

3.7 IntermsoftheNFAallforestsareprotectedandnotrees(deadoralive)maybecut,damagedorremovedwithoutalicencefromDAFF(oradelegatedauthority).Ifnotsatisfiedthatproperconsiderationhasbeengiventotheprotectionofaforest,DAFFhasthelegalrighttorefusealicence,evenifauthorisationfordevelopmenthasbeengrantedbyanothersphereofgovernment.

3.8 Inalldecisions,theprecautionaryprinciplewillbeupheld,implyingthatnosignificantuncertaintiesorrisksmustbeincurredinthedecision-making(AccordingtotheNationalEnvironmentManagementActNo107of1998sustainabledevelopmentrequiresthat“…a risk averse and cautious approach is applied, which takes into account the limits of current knowledge about the consequences of decisions and actions…”).

3.9 Authoritiesresponsiblefordecisionsrelatingtotheapprovalofactivitiesaffectingforests,musttrytoensurethatproperandtransparentpublicparticipationprocessesareundertakenaspartoftheEnvironmentalImpactAssessment(EIA)andplanningprocesses,inaccordancewiththeprescriptionsoftherelevantEIAandplanninglegislation;

3.10 Thepotentialimpactsofdevelopmentorlandusechangemustbeconsideredpro-activelyasearlyintheproposedactivity’splanningstagesaspracticableandbeforeirrevocabledecisionsaremadebytheproponent/developerorrelevantauthority.;

3.11 Theonustoproveexceptionalcircumstancesandthatnouncertaintiesorriskstotheforestwillensue,lieswiththedeveloper;

3 PolicyPrinciples

___________________________________________________________________________________________________2 Destroyingaforestconstitutesanyactionthatwouldleadtotheimmediateorgradualkillingoftreesandassociatedplantandanimallife,andtheforesttopsoil,infavourofanewland use,inawholeforest(directlyorindirectly),orinapartofsuchaforest,irrespectiveofwhetheritisamatureestablishedforest,oranewforestoranewpartofaforestwhichmaybein theprocessofestablishmentorexpansionforreasonssuchasexclusionoffire.

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3.12 Investmentsmadeandcostsincurredbyadeveloperorlandownercannotbetakenintoaccountindecidingwhetheradevelopmentshouldbeallowedornot.Investmentsaremadeatownrisk;

3.13 Wherenational,provincialandlocalgovernmentconservationtargets,ratingsorprioritiesforforestpatchesornationalforesttypesorsub-typesdiffer,thehighestconservationorpriorityratingwillprevail;

3.14 Themandatesoftherelevantauthoritiesdeterminetheirjurisdictionareasfortrusteeshipofthenaturalforests,anddecisionsaffectingforestsaretakenonbehalfofallcitizenswithinthesenational,provincialandlocaljurisdictionareas,requiringgreatcareandresponsibilityonthepartoftheseauthorities;

3.15 Maintainingnaturalforestsinagoodstateandtherehabilitationofdegradedforestsmustbepromoted;

3.16 Theappropriatelevelsandtypesofaccessanduseofnaturalforestsmustbeinkeepingwiththeenvironmentalpotential,sensitivityandcarryingcapacityofthevariousforests.

3.17 Thelevelsofenvironmentalsignificance,conservationvalue,functionalvalue(ecosystemgoodsandservices),sensitivityorthreatenedecosystemstatusmustbetakenintoaccountinalldecisionsaffectingnaturalforests,withprioritygiventotheprotectionofforesttypesandforestpatcheslistedasthreatenedecosystems.

3.18 Wherenaturalforestiscontainedwithinamosaicofotherveldtypesthatareassociatedwithit(orwhichformimportanteco-tonehabitatsthatcontributetodiversityandecosystemfunctioning),theforestmustnotberegardedinisolation.Insuchcasesalandscapeapproachmustbetakenwithanattempttoprotecttheforeststogetherwiththesurroundingveldtypes.Thisapproachrecognisesthatforestsareindynamicequilibriumwiththelandscapesaroundthem,andthatforestmarginsmustbeprotectedandmanagedinbufferareas.Naturalcorridorslinkingforestsandotherhabitatsmustberetainedasfaraspossible.Dueconsiderationmustbegiventotheminimumwidthofcorridorsandbufferzonesandtheminimumsizerequirementsofnaturalhabitatstoenablefullyfunctionalecosystemstoberetained.

3.19 Ifdevelopmentaffectingforestsbutproventobeofanexceptionalnatureisallowed,strictcontrolmustbeexercisedthroughapropermanagementplan(addressingtheconstructionandoperationalphasesofdevelopment)acceptabletotheauthoritiesinvolved.Beforesuch

developmentisconsideredhowever,itmustbeproventhatnofeasiblealternativesareavailable(e.g.alternativesitesorroutes).

3.20 Ifdevelopmentaffectinganaturalforestcanbeproventobeofanexceptionalnature,off-setagreementsmustbeconsideredtocompensateforloss,dependingonthethreatenedecosystemstatusoftheforesttypeorforestpatchaffected.Suchoff-setagreementsmustbeacceptabletotheconservationagencieswithrelevantmandatesorjurisdictionovertheforestsaffected.

3.21 Retainingorpromotingcontrolledpublicaccesstoforestsmustbeaprimeconsiderationinalldecisionsrelatingtolandusechange.

3.22 Therehabilitationandexpansionofnaturalforestscanbepromotedwherenecessaryorfeasible,butnotattheexpenseofotherendangeredhabitatsofanequalorhigherthreatenedecosystemstatus.

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4.1 Introduction

Thegenericguidelinesareaimedatfacilitatingthepracticalimplementationofthepolicyprinciplesinplanninganddecision-makingprocesses.Mandates,procedures,conceptsanddefinitions

relevanttotheseprinciplesaredealtwithhereinmoredetail.Thesearekeptasconciselyaspossibleforeaseofuse,whilefurtherreferencematerialiscontainedintheappendices.

4 GenericGuidelines

4.2 Mandates and Proceduresa) Legislative Mandates Affecting Development Control in Forests

ORGANISATION LEGISLATION RELEVANTMANDATE

TheDepartmentofAgriculture,ForestryandFisheries

NationalForestsActNo84of1998asamended.

ConservationofAgriculturalResourcesActNo43of1983.

Leadagentfortheprotectionofnaturalforests.Controlscuttingofforesttreesorprotectedtreesthroughlicences(canrefusealicenceorsubjectittoconditions–evenifenvironmentalauthorisationhasbeengiven).StrategicnationalforestconservationplanningbyDAFFaswellasinputsinEIAprocesses,haveaninfluenceondevelopmentcontrol.

Reviewslicenceapplicationsforagriculturaluses,includingthemakingofagriculturalfields.

ProvincialDepartmentsofEnvironment

EIARegulationsR385,R386andR387of2006undertheNationalEnvironmentalManagementActNo107of1998.

Toreviewallbasicassessmentandenvironmentalimpactreportsandgrantorrefuseenvironmentalauthorisation,withorwithoutconditions.

ProvincialNatureConservationAgencies

ProvincialNatureConservationOrdinancesandLaws.

Leadagentsfornatureconservationintheprovinces.Manageforestsinprotectedareas.Protectlistedfaunaandfloraspecies(alsoinforests).Strategicprovincialforestconservationplanningsuchasforesttypeconservationtargets,aswellasinputsinEIAprocesses,haveaninfluenceondevelopmentcontrol.

DepartmentofLocalGovernmentandTraditionalAffairs

DevelopmentFacilitationActNo1526of1995(DFA).

ReviewsapplicationsfornewdevelopmentintermsoftheDFAandapprovesorrefusesdevelopment.

DepartmentofEnvironmentalAffairs

NationalEnvironmentalManagementActNo107of1998.

Issuesandadministersenvironmentallegislationandpoliciestofacilitatecoordinatedenvironmentalmanagement,includingcoastalmanagement.Alsoresponsibleforensuringcompliancewithenvironmentalmanagementprinciplesandprocedures,nationallawenforcementandarbitration,aswellasfinalsayonenvironmentalauthorisationswheredevelopmentimpactsmaybeinter-provincialorinternational.AlsohandlesallWorldHeritageSiteapplications.

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SouthAfricanNationalBiodiversityInstitute

NationalEnvironmentalManagementBiodiversityActNo10of2004.

CoordinatesbiodiversityconservationplanningforallbiomeswithintheframeworkoftheNationalBiodiversityStrategyandActionPlan.ThisincludesthelistingofthreatenedecosystemsundertheNEMBiodiversityAct.

SouthAfricanNationalParks NationalParksActNo57of1976asamended.

ManagesNationalParksandregulatesallactivitieswithintheseparks.

DistrictMunicipalities MunicipalSystemsActNo32of2000.

Guidestrategiclanduseplanningatdistrictmunicipallevel.

LocalMunicipalities MunicipalSystemsActNo32of2000.

Dostrategiclanduseplanningwithinlocalmunicipalareas.Controllanduseanddevelopment–reviewapplicationsforlandusechangeanddevelopment.

TraditionalAuthorities TraditionalLeadershipandGovernanceFrameworkActNo41of2003.

CanissueaPermissiontoOccupy(PTO)andalsoissuelicences(eg.forcuttingprotectedtrees)–adualsystemthatneedstobealignedwithotherlegislation.

4.3 Technical and Legal Development Control Issuesa) Applying the Definition of Natural Forest

ToimplementtheNationalForestsActandtheseguidelines,thecorrectidentificationofnaturalforestsisofcrucialimportance.Forthispurposethedefinitionof‘NaturalForest’asdescribedunderDefinitions(page12and13)mustbeused.Todistinguishbetweennaturalforest,thicketandwoodlandmayinsomeinstancesbedifficulttothelayperson,andtheguidelinesinAppendixBcanbeusedtoaidthedistinctionbetweenthesedifferentbiomes.Densewoodlandorthicketcanataglanceappearsimilartonaturalforest,butcanbeidentifiedcorrectlyatcloserinspection.Beingabletoidentifyanddefinethenaturalforestsinanarea,hasadirectbearingontherestrictionsapplicabletolanduseanddevelopment.Usemustbemadeofappropriateforestexpertswhereanyuncertaintiesexist.

Thequestionstoaskare:

• Isthisavegetationcommunitydominatedbyindigenoustreeswhosecrownsarelargelycontiguous(crowncovermustbe75%ormore)?

• Doesthevegetationcommunitygrowinmultiplelayers(atleastaherblayer,shrublayerandacanopylayeroftreeswithtouchingcrowns–seeAppendixA)?

• Arethemajorityofthesetreeandshrubspeciestypicalforesttreeandshrubspecies(indicatorspeciesforoneofthenationalforesttypes)?

• Canitbeidentifiedasoneofthedefinednationalforesttypes(see‘NationalForestTypesinAppendixC-lookatforeststructureandindicatorspecies)?

Thesecriteriaarenotwatertight,andsomeexceptionsmayapplytoforesttypessuchasmangroveforest,riverineforest,sandforestandduneforesttypes.Thescrubformsandpioneerregrowthphaseofotherforesttypesmayalsolacklayers.Allnaturalforests,however,willfitintooneofthenationalforesttypes,willhavemoreorlessclosedcanopies,andwillhaveplantandanimalspeciesgenerallyassociatedwithoneormoreoftheforesttypes.

Otherissuestoconsideristhat:

• Pioneerforestvegetationinadominantlynaturalhabitatwithaclearpotentialtobecomefullygrownnaturalforestifleftundisturbed,mustalsobeconsideredasforest.Thismayberegrowthofforestinanareawhereforestwaspreviouslyremoved,orexpansionofforestasaresultoffactorssuchasexclusionoffire.

• Thecanopyheightofindigenousforestscanvarybetween2and30m.Below6mitcouldbecalledascrubforest.Anynationalforesttypecanhaveforestpartsorforestpatches

___________________________________________________________________________________________________3 NaturalForestscanhaveuptofivelayerswhichusuallyincludeagroundlayer(herbaceousstratum),shrublayerandcanopylayer,butcanincludeintermediatetreesbelowthecanopy andemergenttreesabovethecanopy.Theremaybecasesofnaturalforestswithpoorlydistinguishedlayering,oronlyacanopylayer.Theoccurrenceofaherbaceouslayerindune forestsmay,forexample,dependonthedensityofthecanopy.Mangroveforestasarulehasonlyoneirregularcanopylayer.

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thatvaryfromeachotherinforeststructureandspeciescomposition,dependingonsitespecificcharacteristicssuchasslope,aspect,micro-climate,soilsetc.ThustheSouthernAfrotemperateforestwasdividedinto6forestsub-types,fromVeryDryScrubForestthroughMoistHighForesttoVeryWetScrubForest,withthecanopyheightvaryingbetween6mand30m.

Questionsoftenaskedare:

• Atwhatareasizewillagroupofclosedcanopytreesbeconsideredaforest?–Thisisnotaneasilyansweredquestion,andeachcasehastobetakenonmerit.Verysmallpatchescouldbeborder-linecases,forwhichscientificargumentshavetobeputforwardwherecontroversyarises.Patchesabovehalfahectareinsizeshouldnotbethesubjectofdispute.

• Cannewpioneerstandsofforest(whereforestdidnotoccurintherecentpast,butexpandedforreasonssuchasexclusionoffire),ordisturbedforestwhichmaynotresembleforestafterthedisturbance,beregardedasforest?Yes–formoreinformationseethenextsection.

b) Forest Gaps, Margins and Mosaics

Naturalforestsaredynamicecosystems.Insideaforestgapsmayappearwherecanopytreesdieorfallover,withvaryingstagesofrecovery.Theforestmarginsareusuallypopulatedbyhardyfast-growingpioneertreespecieswhichcanrecoverrapidlyafterfire,grazingorotherdisturbances.Disturbancesthatre-occurtoooften,candisrupttheprocessesofrecoveryandleadtodeclineinforestareas.Forestpatchesareoftenkeptincheckandshapedbynaturalforcessuchasclimateandfire.Whennaturalorhuman-inducedchangesoccursuchasclimatechangeorexclusionoffire(thelatterthroughsurroundinglandusechanges),forestpatchesmaychangeinstructureandspeciescomposition,andmaydecreaseorexpand.Anyareaswhereforestsoccurredandhavebeendisturbed,orwhereforestsareexpanding,withevidenceofnewforestseedlingsestablishingorrecoveryofthecanopy(irrespectiveofthestageofrecoveryorexpansion),mustbeconsideredasforest,andtheNationalForestsActaswellastheseguidelineswillapplytothoseareas.

Thenatureandtempoofrecoveryprocessesinforestgaps,marginsandotherforestareasdisturbedbynaturalorhuman-inducedprocessesmayvarybetweenforesttypes,anddependingonthetype,durationandfrequencyofdisturbance.Recoverycouldtakedecades,orinsomecasesmorethanacentury.Theecotonesandvegetationtypessurroundingforestpatchesmustbekeptintactasavitalpartofmaintainingtheforesthabitatanditsfaunaandflora(someanimalspeciesforexamplerequireavarietyofhabitattypes).Retainingalandscapewithmosaicofforestsandothervegetationtypesensuresoptimalfunctioningoftheecosystem,andthemoretheinroadsmadeonthehabitatssurroundingforests,themoretheforestpatchesaremarginalizedandthegreaterthepressureand

likelihoodofdeteriorationoftheecosystemandlossofspecies.

Invaderplantspeciesoftenpopulatedisturbedforestareas(almostnevertheintactparts),butcanbemanagedandcontrolledovertime,andmustneverbeanexcuseforallowinglandusechangeordevelopmentthatcouldbedetrimentaltoaforest.Thatcouldsetadangerousprecedent,andtemptotherlandownerstodeliberatelyallowsuchdisturbancefortheirowngain.UndertheConservationofAgriculturalResourcesAct(No43of1983)landownersareunderobligationtoeradicateandcontroldeclaredinvasivespeciesontheirland.Development(apermanenttransformationofforest)isgenerallymoredetrimentaltoforestecosystemsandbiodiversitythaninvaderplantspecies.

Anydecisionsonlanduseordevelopmentthatwillaffectnaturalforestsmustbetakenwiththeutmostcare(precautionaryprinciple)andwithdueconsiderationfor:

• Keepingthedynamicforestprocessesintact;

• Preventingdisturbancetoforestecosystems,faunaandflora;

• Keepingforestmarginsandsurroundingmosaicsofhabitatsinplaceasfaraspossible(interaliathroughsufficientbufferzones,corridorsandprotectedareas);

• Notallowingdisturbancecausedbypoorlandmanagementtobeusedasamotivatingfactorforlandusechangethattransformsforest.

c) Land Use Guidance from Threat Status of Forests

Nonewlandusesthatwillsignificantlyimpactonforesthabitats(includingresidentialdevelopment,capitalinfrastructureprojectsandagriculture),mustbeconsideredinornearanyoftheforesttypes.Wherelimitedbuildingandinfrastructuredevelopmentofaneco-touristnatureisallowedinforesttypeswithratingsbelowthestatusofendangered,itmustbeensuredthattheseareplacedintheleastsensitivepartsoftheforest(preferablydisturbedpartsthatcanberehabilitated).Veryexceptionalcases,involvingcapitalprojectsthatcanbeproventobeofnationalorprovincialstrategicimportance,mayhavetobereferredtotherelevanttopmanagementorministersofrelevantdecision-makingauthorities.Shouldsuchprojectsbeapproved,thenoff-setagreementsmustbereachedthatwillresultinanetreplacementofthehabitatlost.

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THREATSTATUSRATINGOFFORESTTYPEANDFORESTPATCH

GUIDELINES

Activitiesindicatedbelowarethemaximumallowable,butwithdueconsiderationofthesensitivityofthesiteswithinaforest,occurrenceofrarespeciesetc.

OFF-SETAGREEMENTS

CriticallyEndangered Noactivitiesordevelopmentmustbeconsideredthatwilldestroyforest;

Onlylow-impacteco-touristfacilitieslikeboardwalksandbird-hides,butnobuildings,infrastructureorbushcamps.

Onlyforprojectsproventobeofnationalorprovincialstrategicimportance,withnofeasiblealternatives.

Endangered Noactivitiesordevelopmentmustbeconsideredthatwilldestroyforest;

Low-impacteco-touristfacilitieslikeboardwalksandbird-hides,andsmallbush-camps,butnobuildingsandinfrastructure.

Onlyforprojectsproventobeofnationalorprovincialstrategicimportance,withnofeasiblealternatives.

VulnerableandLower Low-impacteco-touristfacilitieslikeboardwalksandbird-hides,andsmallbush-camps.

Verylimitedbuildingandinfrastructuredevelopmentofaneco-touristnature,suchaslimitednumbersofchalets.Theseshouldbeplacedoutsideforestsasfaraspossible,withforestmarginsintact.

Canbeconsideredfortheabove,andforlimitedbuildingandinfrastructureofaneco-touristnature.

Theabovelanduseguidelinesforthevariousthreatenedstatusratingsofforestsmustbeusedasbenchmarktodeterminewhetheraproposedlandusewillsignificantlytransformaforestornot.Thenumberofpeopleorvehicles(ifallowed)andthefootprintofbush-campsandotherstructuresandtransformedareas,mustbelimited.

d) What Constitutes Exceptional Circumstances?

TheNationalForestsActof1998statesclearlythat“…natural forests may not be destroyed save in exceptional circumstances where, in the opinion of the Minister, a proposed new land use is preferable in terms of its economic, social or environmental benefits”.ThisdoesnotmeanthatallsuchissueshavetobereferredtotheMinisterofAgriculture,ForestryandFisheriesforadecision,butimpliesthatmandatedofficialscanapplytheprincipleindecision-making,withintheframeworkofpolicyandlegalinterpretation.

Theterm“exceptionalcircumstance”indicatessituationsthatareunusualorrare.

Inthiscaseitreferstocapitalprojectsofnationalandprovincialstrategicimportance.Whereforestsareaffectedbysuchprojects,itmustfirstbeprovenbeyonddoubtthattheseareinthestrategicnationalorprovincialinterest,andsecondlythatnofeasiblealternativeisavailable(suchasanalternativesiteorroute).Ifunavoidable,anoff-setagreementmustbereachedtocompensatefortheloss,andallfeasiblemitigationmeasuresmustbetakento

minimisetheimpact.“Exceptionalcircumstances”mayalsoincludeessentialexpansionofinfrastructureorservicesaffectingnaturalforestinalocalauthorityarea,butisonlyallowableifthereisnofeasiblealternative.

Landuseswhichtransformnaturalhabitatandwhicharenotofnationalorprovincialstrategicimportance(includingresidentialdevelopmentandagriculture),donotconstituteexceptionalcircumstances.Whatthen,couldbeconsideredofnationalstrategicimportance?Examplesare:

• VitalinfrastructuresuchasaroadconstructedbetweenUgieandUmtataintheEasternCapewhichcutsthroughLangeniforest,andwillgiveadirectlinkbetweenanimportantcapitaltownandgrowthnodesintheinteriorwhichareimportantsuppliersandmarketsofgoods.Thiswillcutoutlongdetoursandstimulateeconomicgrowthandtourism.Theimpactoftheroadontheforestwasgreatlyloweredbyareductionoftheroaddesignspeed.ThewideningoftheN2roadthroughaportionoftheTsitsikammaforesttoaccommodateincreasinglyheavytrafficcouldalsobeseenasanissueofstrategicimportance,butthisisconsideredalessclearcutcasebysomesectorsofthepublic.Otherexceptionalcasesmayincludemilitaryinstallationsofstrategicdefenseimportance,suchasforwardwarningradarstationsonMariepskopintheDrakensberg(Mpumalanga)andHanglip

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ontheSoutpansberg(LimpopoProvince).Thesehavesomeinfrastructure,includingserviceroads,thataffectforests.

Whereenvironmentalauthorisationisgivenfordevelopment,strictconditionsmustbesetforappropriatemitigationmeasures,subjecttoanapprovedenvironmentalmanagementplan,tobeoverseenbyanappropriatelyqualifiedenvironmentalmanager,andtobemonitoredbytherelevantgovernmentbodies.Inaddition,anappropriateoff-setagreementmustbereachedtobenefitconservationintheimmediatearea.Existingownershipofpropertyinitselfdoesnotconstituteanexception.

e) Land Use and Development Guidance

• Strategic Planning:

Initsinteractionwithnational,provincialandlocalauthoritiesDAFFmustpromotethepro-activeidentificationandearmarkingofnaturalforestsforprotectionasnaturalopenspace(privateorpublic),“GreenWedges”orconservationareasinstrategicplansoflocalanddistrictmunicipalitiessuchastheIntegratedDevelopmentPlans,StructurePlansandEnvironmentalManagementPlans.ThustheplansshouldsupporttheNationalForestsActandNationalEnvironmentalManagementAct(whereincompatiblelanduseshavebeenassignedtoforestareas,thislegislationiscompromised).Protectionofforestsintheseplansmustthenbeupheldinalldecision-makingaffectinglandusechangeanddevelopment.

• Environmental Impact Assessment:

EnvironmentalImpactAssessmentproceduresmusttakecognisanceoftherequirementsofallplansandlegislationaffordingprotectiontonaturalforests,includingtheNationalForestsActaswellastheseprinciplesandguidelines.Theimpactsoftheproposedlanduseordevelopmentonanynaturalforestsmustbecomprehensivelyinvestigated,includingimpactsonthebufferareas,theforestfaunaandflora,andtheforestecosystemanddynamics.Suchimpactassessmentmustalsoconsiderthenationalandprovincialconservationimportanceandplanningfortheforesttypesandindividualforestpatchesinvolved(especiallyifthesearelistedasthreatenedecosystemsundertheNEMBiodiversityAct),aswellasthewiderstrategicstatusquooftheforesttypes(includingthreats).Incaseofthelatter,thelegalrequirementisthatabasicassessmentbedoneforanyextentofthenaturalvegetationremoved(theEIARegulationsR385of2006undertheNationalEnvironmentalManagementActNo107of1998requiresabasicassessmentforremovalofnaturalvegetationabove3hectares,butthisthresholdfallsawayforlistedthreatenedecosystems).

Noenvironmentalauthorisationshouldbegiventoland

usesthatwillsignificantlytransformforests,saveinprovenexceptionalcasesofnationalorprovincialstrategicimportancewherenoalternativesareavailable.Afullenvironmentalimpactassessmentshouldberequired,withaninvestigationoffeasiblemitigationmeasuresandoff-setpossibilities.

• Development Planning:

Aswithenvironmentalimpactassessmentprocedures,nodevelopmentauthorisationshouldbegiventolandusesthatwillsignificantlytransformforests,saveinprovenexceptionalcasesofnationalorprovincialstrategicimportancewherenoalternativesareavailable.Wherelow-impacteco-touristfacilities(notthesameaslowdensityresidential“eco-estates”)andactivitiesareauthorized,thesemustbeplacedintheleastsensitivepartsoftheforest,andcaremustbetakentolimittheimpacts.Developmentfootprintsmustbelimited,buildingorstructuredesignandcolourmustblendwiththeforest,forestcanopiesmustbekeptintact,structuresshouldbeplacedonstilts,andheavilyusedwalkwaysshouldbeplacedonboardwalkstopreventsoilcompaction(seetheconceptofadevelopmentfootprintinAppendixD).Incoastalandduneforestareasthepositioningofpathwaysandstructuresmustbesuchtopreventwindblowoutsandtheexposureofvegetationtosaltspray.

• Developmentthatwilltransformforestssignificantlybutproventobeofnationalorprovincialstrategicimportancecouldbeauthorizedifthereisnofeasiblealternative.Mitigationmeasuresmustbeappliedtolimitimpactsandoff-setagreementsshouldbereachedthatwillresultinanettecologicalgainofthehabitattypelost(seedescriptionofoff-setagreementunderdefinitions).

• Proposedlandusesordevelopmentthatmeettherequirementsofthelanduseguidelinessetforthevariousthreatenedstatusratingsoftheforests,stillrequirecarefuldesignandplacementtominimiseimpacts.Themostsensitivepartsofforestshavetobeavoided.Significantstructuressuchaschaletsshouldbeplacedoutsideforestswithbufferareastokeepforestmarginsintact.Thesizeofbufferareascouldvaryaccordingtocircumstances,butshouldnotbelessthan20m.Inexceptionalcasesstructurescouldbeplacedindisturbedareaswithinforeststhatarenotpartofthenaturaldisturbanceregime.Properinvestigationbyappropriatelyqualifiedexpertsarenecessary.

f) Expert Investigation

Investigationsbyappropriatelyqualifiedenvironmentalpractitionersandsupportingexperts(forestscientists,ecologists,botanistsetc.)arenecessaryforanylanduseordevelopmentproposalsaffectingnaturalforests.Thetypeofexpertsneededwillbedictatedbycircumstances.Suchexpertsmustbeindependentandobjective,

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andmaynothaveanypersonalinterestorgainsfromtheproposedlanduseordevelopment.Whereuncertaintiesariseaboutthefindingsofaconsultant,asecondopinioncouldbesought,orthereportcouldbesubjectedtopeerreview(byothersuitablyqualifiedexperts),especiallyiftherearesubstantialconcernsbystakeholdersaboutthefindingsofconsultants.

Secondaryandaccumulativeimpactsmustalsobeaddressedinallinvestigations.

g) Forest Rehabilitation

Wheredestructionofforesttookplacewhetherthroughlegalorillegalaction,rehabilitationofsuchareasmustbeaprimemitigationconsideration.Experiencewithrehabilitation(e.g.theminedduneareasofRichardsBayMinerals)indicatesthat:

• Theratesofrecoveryofforesttypesmaydiffer,andtherateofrecoverycouldalsodependonthescaleandintensityofdisturbance;

• Recoverymaytakemanydecades,andincasesoflargescaledisturbanceitmaynotbepossibletoachievethere-creationofthepreviousenvironmentalconditionsorbiodiversitythatexistedwithinahumanlifetime(forestsaredynamicecosystemswhichdevelopedoverpaleontologicaltime-spans,andevenmorerecentcoastalduneforestsareoftentheresultofinter-activenaturalprocessesovercenturies);

• Rehabilitationorre-establishmentofforestsmustnotbeseenasaquickfixorexcuseforallowingthedestructionofforestinfavourofanewlanduseordevelopment;

• Forestrehabilitationorcreationrequiresveryspecificconditions,nottheleastofwhichistheextremelyslowprocessofpedogenesisortopsoildevelopment,andthereforeisaverycomplexandspecialisedfieldrequiringinputsofexperts;

• Attemptstocreateforestswheretheydidnotexistbeforeareveryseldomsuccessful;

• Forestrehabilitationorestablishmentshouldfocusontheinterplantingoftreesand/orestablishingofpioneerspeciesandallowingaforesttomaturegraduallythroughtheprocessesofplantsuccession;

• Thetreespeciesshouldbecarefullyselectedandplantedintherightsiteconditionsforeachspecies,andmustbespeciesthatoccurlocallyinthatparticularforesttype;

• Smallervegetation(herbs,shrubsandseedlings)canberemovedinthepathofdevelopmentandmaintainedinanurseryoff-siteforre-establishmentintherehabilitationphase(usuallyinfrastructureprojectsofnationalorprovincialstrategicimportance).

h) Off-set Agreements

Whereanoff-setagreementbecomesnecessarytocompensateforanettlossinbiodiversity,theagencythatwillberesponsibleforthislosshastoreachanagreementwiththeconservationagencieswiththemandatesorjurisdictionovertherelevantforestorforests,includingDAFFandtherelevantprovincialconservationagency.Off-setagreementsareusuallydevelopedaftertheDraftEnvironmentalImpactReport(EIR)foraprojecthasbeencompleted,andaspecialiststudyisthendoneandincludedwiththefinalEIR.Theoff-setagreementproposaltobeagreedshouldincludethefollowinginwriting:

• Adescriptionoftheoff-settobeachieved;

• Descriptionofthesitesinvolved,theirsuitabilityandtheirpreparation(wheretheoff-setinvolvesthecreationorrehabilitationofothersites);

• Whereapplicable,thetechniquestobeemployed(e.g.rehabilitationtechniques);

• Descriptionofthephases;

• Fundingmechanismandcost-breakdowns;

• Specialistsinvolved;

• Processtoinvolvethemainstakeholders(signatoriesoftheagreement);

• Monitoringofcompliance;

• Penaltiesfornon-compliance.

Biodiversityoff-setguidelineshavebeendevelopedforsomeprovinces,andtheseshouldbeconsulted.

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BOX 2: THE LISTING OF THREATENED AND PROTECTED FOREST ECOSYSTEMS

In2006theSANationalBiodiversityInstituteinitiatedaprocesstoidentifythreatenedandprotectedecosystems.TheNationalEnvironmentalManagementBiodiversityActNo10of2004(NEMBA)determinesthat“threatenedecosystems”listedunderthisActmustbetakenintoaccountinIntegratedDevelopmentPlansoflocalauthorities,andthatabasicassessmentisrequiredforthetransformationofanyamountofnaturalvegetationofsuchlistedecosystems.Thisimposesstrictercontroloveractivitiesthatmayaffecttheseecosystemsbothinforwardplanninganddevelopmentcontrol(theEIARegulationsR385,R386andR387of2006undertheNationalEnvironmentalManagementActNo107of1998onlyrequiresabasicassessmentforremovalofmorethan3hectaresofnaturalvegetation,apartfromotherlistedactivities).TheActalsomakesprovisionfortheestablishmentof“bioregionalplans”,whichcontainmeasuresfortheeffectivemanagementofbiodiversityandthecomponentsofbiodiversityintheregion.Listedthreatenedecosystemswillbereflectedintheseplansaspartofthe“criticalbiodiversityareas”tobeaccountedforinplanningandconservation,andmonitored.TheActmakesprovisionforasecondcategoryof“protectedecosystems”whichareunderthreat,butnotinimmediatedanger.Suchecosystemshavetobemonitoredandwillalsobereflectedinbioregionalplans.

Theprocessstartedwithanationalworkshopwithstakeholderswhereitwasdecidedtodeveloponesetofcriteriaforidentifyingthreatenedorprotectedecosystemsforterrestrialbiomes,buttodevelopaseparatesetforriverineandmarinesystemsduetotheiruniqueness.Aworkinggroupwasestablished,andworkshopswereheldwithstakeholderswiththeaimofidentifyingforesttypesandforestpatchestobelistedasthreatenedandprotectedecosystems.

ThecriteriadevelopedhavethresholdstodeterminewhetherforesttypesorindividualforestpatcheswouldbelistedasCriticallyEndangered(CE);Endangered(E)orVulnerable(VU).OnlyforesttypesandforestpatchesdeterminedtobeCriticallyEndangeredorEndangeredarelistedasthreatenedecosystems,whilethosedeterminedtobeVulnerablearelistedasprotectedecosystems.

The Criteria developed are:

A1.Irreversiblehabitatloss;A2.Ecosystemdegradation&lossofintegrity;B.Rateoflossofnaturalhabitat;C.Limitedoriginalextent&imminentthreat;D.Threatenedspeciesassociations;E.HighConservationvalueforestpatchesunderimminentthreat

Thefollowingforesttypesarelistedasthreatenedforestecosystems:

ENDANGERED CATEGORY VULNERABLE CATEGORY

KwaZulu-NatalCoastalForest LowEscarpmentMistbeltForestMangroveForest LowveldRiverineForestWesternCapeMilkwoodForest EasternScarpForest PondolandScarpForest SwampForest TranskeiCoastalScarpForest

Severalforestpatchesorclustersoccurinecosystemareasalsolistedasendangered,andthishastobecheckedwiththeSouthAfricanNationalBiodiversityInstitute.Thesepatchesarenotnecessarilypartofoneoftheforesttypeslistedasendangeredorvulnerable.Formoreinformationsearchthewebsitewww.sanbi.org

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i) Biodiversity (biological diversity):

Thespeciesrichness(varietyofspecies)offaunaandflorainahabitattype,geneticvarietywithinandamongspecies,andvarietyofecosystemsorhabitattypes.Biodiversityisconsideredasaprimeconservationaim,andrequiressoundfunctioningecosystemsandtheprotectionofsufficientareasofeachhabitattype.

ii) Destruction: Thiscouldmeananyactionthatwillcausethelossofforesthabitatorpartofit,includingactionswithdirectimpactssuchasthecuttingofforesttrees,orindirectimpactssuchasthealterationofestuarinewaterflowwhichcouldleadtothedeclineofmangroveforest.

iii) Development: Anyactionthatwillpermanentlytransformordominateforesthabitat(andsurroundinghabitats)forpurposeoflandusechange(includingthemakingofagriculturallandsandurbanlanduse,excludingopenspaceandconservationusesinandaroundurbanareas).

iv) Ecosystem: Adynamicsystemofplant,animalandmicro-organismcommunitiesandtheirnon-livingenvironmentinteractingasafunctionalunit.Forestecosystemsarecharacterizedbyapredominanceoftrees,andbythefauna,floraandecologicalcycles(energy,water,carbonandnutrients)withwhichtheyarecloselyassociated.

v) Eco-tone: Atransitionalzoneinwhichonetypeofecosystemorhabitattendstomergewithanothertypeofecosystemorhabitat(fore.g.forestmarginbetweenaforestandgrassland).Thesetransitionalzonesusuallycontainamixofspeciesfrombothecosystemsorhabitats,andthespeciesdiversityasaconsequenceareoftenhighertherethaninthetwoadjoininghabitats(calledthe“edgeeffect”).

vi) Forest Structure : Therelativeheightandnumberoflayersthataforestattain.

vii) Forest Type : Foreststhataresimilarinstructureandcompositionofplantandanimalsspeciescanbegroupedintoaforesttype,andcanbedistinguishedfromotherforesttypesthataredifferentinstructureand/orspeciescomposition.ThenationalforesttypeclassificationcategorizestheSouthAfricanforestsinto24foresttypes,whiletwomorenationalforesttypeshaverecentlybeenidentified.Forestsbelongingtoanationalforesttypecanalsobedividedorcategorizedintoforestsub-types,whichisafurtherrefinedclassificationonthebasisofforeststructureandspeciescomposition.

viii) Forest Margin : Naturalforestsarefringedbybeltsofhardypioneerplantsthatcanrecoverorregeneraterapidlyafterbeingdamagedbyfireorgrazing,providedthatsuchdestructiveeventsdonotoccurtoofrequently.Thesemarginsaretransitionalzones(ecotones)betweenforestsandthesurroundingveldtypes(usuallygrassland,fynbosorwoodland)thatprotecttheforestfromfireandthedryingeffectsfromthesun.

ix) Natural Forest (Indigenous Forest) :

Thedefinitionof“naturalforest”intheNationalForestsActof1998(NFA)Section2(1)(xx)isasfollows:

‘Anaturalforestmeansagroupofindigenoustrees

• whosecrownsarelargelycontiguous

• orwhichhavebeendeclaredbytheMinistertobeanaturalforestundersection7(2)’

Definitions

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ix) Natural Forest (Indigenous Forest) :

ThisdefinitionshouldbereadinconjunctionwithSection2(1)(x)whichstatesthat‘Forest’includes:

• Anaturalforest,awoodlandandaplantation

• Theforestproduceinit;and

• Theecosystemswhichitmakesup.

Thelegaldefinitionhastobesupportedbyatechnicaldefinition,asdemonstratedbyacourtcaseintheUmzimkulumagisterialdistrict,relatingtotheillegalfellingofYellowwood(Podocarpuslatifolius)andotherspeciesintheGonqogonqoforest.

Fromscientificdefinitions(alsoseeAppendixB)wecandefinenaturalforestas:

• Agenerallymulti-layeredvegetationunit4

• Dominatedbytrees5thatarelargelyevergreenorsemi-deciduous

• Thecombinedtreestratahaveoverlappingcrowns,andcrowncoveris>75%

• Grassesintheherbaceousstratum(ifpresent)aregenerallyrare

• Firedoesnotnormallyplayamajorroleinforestfunctionanddynamicsexceptatthefringes

• Thespeciesofallplantgrowthformsmustbetypicalofnaturalforest(checkforindicatorspecies)6

• Theforestmustbeoneofthenationalforesttypes

x) Off-set agreement: Anagreementtoinitiateconservationactionstocompensatefortheresidualunavoidableharmtoecosystemsandbiodiversitycausedbyprojects,usuallytoensurethatthereisnonettlosstobiodiversity.Agreementsonoff-setshavetobereachedonacasebycasebasisbythepartiesinvolved.

xi) Sustainable Development: Theintegrationofsocial,economicandenvironmentalfactorsintoplanning,implementationanddecision-makingsoastoensurethatdevelopmentservespresentandfuturegenerations.TheNationalEnvironmentalManagementActstatesinteraliathatsustainabledevelopmentrequirestheavoidance,mitigationandremediationofdisturbanceofecosystemsandlossofbiodiversity,aswellasaprecautionaryapproach.

________________________________________________4Numberoflayersisnotacriterion.SeeappendixA.5Thedefinitionoftreeappliedhereisasfollows:“a woody plant, self-supporting with a diameter at breast height (DBH) greater than 10 mm and a height greater than 3 m (single-stemmed), and if multi-stemmed, then a height greater than 5 m”.Thisisthepotentialheightthatthespeciescancommonlyreach,eventhoughtheymayoccurintheformofalowshrubunderextremeconditionssuchasthefore-dune.6Thespeciesofallgrowthforms

• Mustbetypicalofanaturalforesthabitat

• UsespecieslistedfordefinedforesttypesofNationalForestTypeClassificationasguide(VonMaltitzetal2003)

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AppendicesA) PROFILE OF NATURAL FOREST

Natural forest may have some or all of following layers or state present:

• Groundorherbaceouslayer(orlayers)containingherbs,and/orfernsand/orwoodyseedlings;

• Shrublayer(orlayers);

• Looselydefinedintermediatelayer(s)oftreesbelowcanopy;

• Canopylayerformedbymor-orlesscontiguouscrownsofcanopytrees;

• Emergenttreelayer(one,twoorseveraltreesperhectare)abovegeneralcanopy.

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B) COMPARISON BETWEEN THE CHARACTERISTICS OF NATURAL FOREST, WOODLAND AND THICKET

Attribute Natural Forest Woodland Thicket

CANOPY(Treecrowns)

largelycontiguous broken,treesseparatedfromeachotheratvaryingdistances

largelycontiguous

LAYERING(Strata)

twoormore(canopy,herbaceousandshrub/saplinginbetween)

twoormore(canopy,herbaceousandshrub/saplinginbetween)

absent

GRASSES absent present,dominantinherbaceousstratum

absent,exceptinglades(openings)

FIRE absent present(fireadaptedecology) absent

SEASONALEFFECTS evergreen deciduous evergreen

TREECOMPONENT dominant dominant rare

WOODYELEMENT dominant(trees) treesandgrasssharedominance

dominant(denseshrubs/dwarfedtrees)

Key: Sharingattributes:Green

Notsharingattributes:Blue

ANALYSIS:• Allthreevegetationtypesarewoody(forests)

• Onlytwoattributesarecommontobothnaturalforestandwoodland

• Noattributesarecommontobothwoodlandandthicket

• Mostattributesaresharedby,orcommonto,naturalforestandthicket

• Woodlandismoredifferentfrombothnaturalforestandthicket,thannaturalforestandthicketfromeachother

• Theconclusionisthatthereisacloserrelationshipbetweennaturalforestandthicket,thanbetweeneitheroftheseandwoodland.

• Itmaybethatthicketisaxerophyticformofforest

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C) NATIONAL FOREST TYPESMajor forest groups and forest types belonging to them

I: SOUTHERN AFROTEMPERATE FOREST GROUP (VEGMAP CODE FOz I)

I1:WesternCapeTalusForests(VEGMAPCODEFOzI1)I2:WesternCapeAfrotemperateForests(VEGMAPCODEFOzI2)I3:SouthernCapeAfrotemperateForests(VEGMAPCODEFOzI3)

II: NORTHERN AFROTEMPERATE FOREST GROUP (VEGMAP CODE FOz II)

II1:MarekeleAfromontaneForests(VEGMAPCODEFOzII1)II2:NorthernHighveldForests(VEGMAPCODEFOzII2)II3:DrakensbergMontaneForests(VEGMAPCODEFOzII3)II4:LowEscarpmentMistbeltForests(VEGMAPCODEFOzII4)

III: SOUTHERN MISTBELT FOREST GROUP (VEGMAP CODE FOz III)

III1:EasternMistbeltForests(VEGMAPCODEFOzIII1)III2:TranskeiMistbeltForests(VEGMAPCODEFOzIII2)III3:AmatoleMistbeltForests(VEGMAPCODEFOzIII3)

IV: NORTHERN MISTBELT FOREST GROUP (VEGMAP CODE FOz IV)

IV1:NorthernMistbeltForests(VEGMAPCODEFOzIV1)IV2:MpumalangaMistbeltForests(VEGMAPCODEFOzIV2)

V: SCARP FOREST GROUP (VEGMAP CODE FOz V)

V1:EasternScarpForests(VEGMAPCODEFOzV1)V2:PondolandScarpForests(VEGMAPCODEFOzV2)V3:TranskeiCoastalScarpForests(VEGMAPCODEFOzV3)(previouslyTranskeiCoastalForests)

VI: SOUTHERN COASTAL FOREST GROUP (VEGMAP CODE FOz VI)

VI1:EasternCapeDuneForests(VEGMAPCODEFOzVI1)VI2:AlbanyCoastalForests(VEGMAPCODEFOzVI2)VI3:WesternCapeMilkwoodForests(VEGMAPCODEFOzVI3)

VII: NORTHERN COASTAL FOREST GROUP (VEGMAP CODE FOz VII)

VII1:KwaZulu-NatalCoastalForests(VEGMAPCODEFOzVII1)VII2:KwaZulu-NatalDuneForests(VEGMAPCODEFOzVII2)

VIII: TROPICAL DRY FOREST GROUP (VEGMAP CODE FOz VIII)

VIII1:LicuatiSandForests(VEGMAPCODEFOzVIII1) VIII2:NwambyiaSandForests(VEGMAPCODEFOzVIII2) –NewForestTypeVIII3:IronwoodDryForests(VEGMAPCODEFOzVIII3) -Newforesttype

A: AZONAL FOREST TYPES

A1:LowveldRiverineForests(VEGMAPCODEFOa1)A2:SwampForests(VEGMAPCODEFOa2)A3:MangroveForests(VEGMAPCODEFOa3)

FROM:

VONMALTITZ,G.,MUCINA,L.,GELDENHUYS,C.,LAWES,M.,EELEY,H.,ADIE,H.,VINK,D.,FLEMMING,G.&BAILEY,C.(2003).Classification System for South African Indigenous Forests. An objective classification for the Department of Water Affairs and Forestry. EnvironmentekReportENV-P-C2003-017,CSIR,Pretoria.275pp.

MUCINA,L.&RUTHERFORD,M.C.(eds.)(2006).TheVegetationofSouthAfrica,LesothoandSwaziland.Strelitzia19.SouthAfricanNationalBiodiversityInstitute,Pretoria.

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D) LAND USE AND DEVELOPMENT DESIGN CONCEPTS

Allnaturalforestsareconsideredhighsensitivityenvironments.Nodevelopmentmaybeallowedexceptlimitedeco-touristfacilitiesasspecifiedintheguidelinesforthevariousforestthreatenedstatusratings.Wheredevelopmentofaneco-touristnatureordevelopmentproventobeofexceptionalnationalorprovincialstrategicimportanceisallowed,thedevelopmentfootprintmustberestricted.Buildingstructuresmustusuallybeplacedoutsidetheforestwithasufficientbufferareatokeeptheforestmarginintact(usuallymorethan20m).Wherebuildingstructuresareerectedinsideaforest,thesemustbebuiltonstiltsandfittedintodisturbedareasasfaraspossible,maynotprotrudeabovethecanopy(canopymustremainintact),andmaynothavegardens.Anypavedareasandservicesmustbekepttoaminimum.Avoidplacingcablesundergroundorthroughthecanopy,butthesecanbefixedtosmallpolesaboutametreaboveground.Buildingstructuresmustbeinnaturalcoloursthatblendwiththesurroundingenvironment.

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Clusterlayoutsfordevelopmentgenerallyofferbetteropportunitiestominimiseenvironmentalimpacts.Housescanbeclusteredtogetherinlesssensitiveenvironmentsandhighconservationvalueecosystemssuchasnaturalforestscanbeprotectedonlandheldintrustbythelandownersorsetasideforconservationandlow-impactoutdoorrecreationactivities.Clusterlayoutscanreducethelength,costandimpactsofroadsandservicesconsiderable.

LayoutanddesignbytheDepartmentofWaterAffairsChiefDirectorate:CommunicationServices

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