MINISTRY OF THE ENVIRONMENT. . . . . . . . .

The Danishnational forest programmein an internationalperspective

Danish Forest and Nature Agency

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The Danishnational forest programmein an internationalperspective

MINISTRY OF THE ENVIRONMENT

Danish Forest and Nature Agency

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Title:The Danish national forest programme in an international perspective

Edited by:Division of Forest Policy of the Danish Forest and Nature Agency

Translation:Hanne Stadsgaard Jensen & Frans Richard Bach

Photographs:Bert Wiklund: all, exceptJens Nytoft Rasmussen: pages 32, 33 and 36Erling Buhl: page 11Torben Hoch: page 10Lars-Kristian Crone: page 3

Illustrations edited by:Jens Nytoft Rasmussen & Anna Thormann

Graphic design:Page Leroy-Cruce

Print:Frederiksberg Bogtrykkeri A/S

ISBN:87-7279-456-9

Amount printed:2500

Printed in Denmark

© Ministry of Environment, Danish Forest and Nature AgencyHaraldsgade 53DK-2100 Copenhagen Øwww.skovognatur.dksns@sns.dk

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Preface

Hans Chr. Schmidt

Minister of the Environment

This year, the World Summit on Sustainable De-velopment will take place in Johannesburg, SouthAfrica. This is a good opportunity to assess pro-gress since the Rio Conference on Environmentand Development ten years ago and to set up newobjectives for the future.

Forest issues were high on the agenda in Rio,and an international dialogue on forests tookplace in several fora following the conference.

Denmark has actively participated in this proc-ess, and we are attaching great importance to na-tional implementation of the recommendations,which have been the result of the process. Onesuch recommendation is to develop national for-est programmes. At the same time, we have feltthe need, nationally to analyse the situation andto adjust our targets, policies and legislation tothe present situation and the future ahead of us.

On this background a Danish National ForestProgramme has been developed. The programmetakes stock of the present situation of the forestsector in Denmark, it presents policy objectivesfor the future, and it identifies measures to im-plement the policy.

The Danish National Forest Programme is aim-ing at sustainable forest management equallybased on economic, ecological, environmentaland social concern.

The programme aims at a long-term conver-sion towards a forest management regime, which

increasingly supports and utilises the naturalprocesses of the forest. Forest managementshould not only strike a balance between econo-my, environment and ecology, but also buildupon their mutual supportiveness.

In Denmark the forests play a central role interms of providing opportunities for outdoor rec-reation. This is a significant social function ofgreat importance for the life quality and well be-ing of most Danes. Consequently, also this as-pect of forest management is appropriately ad-dressed in the forest programme.

The programme will now be implemented,which will entail legislation, economic incentives,dialogue, training, information and awarenessraising.

It is my hope, that the Danish National ForestProgramme will be of interest to others as an ex-ample of national forest programming in a devel-oped low forest cover country.

Lars

-Kris

tian

Cro

ne

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List of acronyms

CBD Convention on Biological Diversity

CGIAR Consultative Group on International Agricultural Research

EU The European Union

FAO United Nations Food and Agricultural Organisation

GEF Global Environment Facility

IFF Intergovernmental Forum on Forests

IPF Intergovernmental Panel on Forests

ITTA International Tropical Timber Agreement

ITTO International Tropical Timber Organisation

DFNA Danish Forest and Nature Agency

UNCCD United Nations Convention to Combat Desertification

UNCED United Nations Conference on Environment and Development

UNFCCC United Nations Framework Convention on Climate Change

UNFF United Nations Forum on Forests

Background documentation in English

A shared future – balanced development – Denmark’snational strategy for sustainable development,The Danish Government, 2002(available at www.mst.dk)

Biological Diversity in Denmark, Status and Strategy,Ministry of Environment and Energy, 1996

Strategy for Natural Forests and other Forest Types ofHigh Conservation Value in Denmark, The DanishForest and Nature Agency, 1994

Strategy for Sustainable Forest Management,Ministry of the Environment, 1994

The Danish Forest Act of 1. January 1997(available at www.sns.dk/skov/Forestact.htm)

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Table of contents

Introduction 071. Background 08

1.1 Historical background 081.2 International forest policy processes 111.3 National implementation 11

2. Visions for the national forest programme 122.1 Main objectives and specific objectives 142.2 Guidelines for sustainable forest management 16

3. Legal and institutional framework 174. Nature values, physical environment and basis for forest management 18

4.1 Status and existing policies 184.2 Future efforts 22

5. Forest resources and economy 255.1 Status and existing policies 255.2 Future efforts 25

6. Outdoor recreation 286.1 Status and existing policies 286.2 Future efforts 28

7. Afforestation 307.1 Status and existing policies 307.2 Future efforts 30

8. Capacity building and awareness raising 328.1 Statistics 328.2 Research and development 338.3 Education 338.4 Information sharing and dissemination in the forest sector 34

9. International activities 359.1 Existing objectives and means 359.2 Future efforts 36

10. How the Danish national forest programme was developed 38

Annex I: Danish guidelines for sustainable forest management 39at management unit level

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Introduction

Denmark is a developed country with a low for-est cover. The economic importance of the Dan-ish forests is presently declining, while other as-pects and benefits of the forests are of increas-ing importance to the Danish society.

In 2000, it was decided to develop a NationalForest Programme based on the changing condi-tions for the Danish forest sector and the obliga-tions outlined in the various international agree-ments and conventions to which Denmark is aparty.

This is a condensed and adapted version ofthe Programme, with a specific focus on the waysand means through which Denmark is respond-ing to the internationally agreed obligations andpriorities for forest management.

The main objective of the National Forest Pro-gramme is full implementation of sustainableforest management, which incorporates eco-nomic, ecological as well as social considerations.

The specific key objectives include:

Nature and environmentLong-term conversion to near-to-nature forest management principles and 10% of the na-tional forest area having biodiversity as themost important management objective by2040.

EconomyDevelopment of sustainable economic frame-work conditions for the forest sector.

Near-to-nature forest management has a clear finan-cial aim and builds on the gentle moderation of thenatural processes of the forest ecosystems

Social concernMaintain and develop the forests as a benefitfor public welfare through opportunities foroutdoor recreation and nature experience inthe forests.

AfforestationForest landscapes should cover 20-25% ofDenmark after one tree generation (80 – 100years) – and the scope and potential for natu-ral habitats and processes should bestrengthened in this effort.

KnowledgeEffective information sharing – access to up-dated and relevant knowledge as a basis forforest policy development and implementa-tion through research, education, awarenessraising and dissemination of information.

International objectivePromotion of sustainable forest managementat global and regional levels.

Main instruments to achieve these objectives willbe:• Adaptation of legislation• Dialogue• Research and development• Awareness raising, dissemination of informa-

tion and training• Economic incentives• International co-operation

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1. Background

In Denmark, forests cover approximately 486,000ha, corresponding to around 11% of the total area.The forests are fragmented and often very small.Out of a total annual wood consumption of 8million m³, around 25% are produced nationally.72% of the forest area is privately owned, whilethe remaining 28% are publicly owned, mainlyas state forests. Around 2000 people are em-ployed in the primary forest sector, while the sec-ondary wood product industry employs around14,000 people and is a major export business. Itis estimated that on average each of the 5,3 mil-lion Danes goes for a walk in the forest 11 timesper year.

1.1 Historical background

If left entirely to itself with no human disturbance,Denmark’s surface area would eventually be cov-ered almost completely by forest, as it was whenthe first hunters arrived after the last Ice Age.When they settled down and became farmers, theystarted clearing the forests, and as the centuriespassed, the forest cover was gradually reducedto 2-3 % some 200 years ago. Since around 1800,large-scale plantings have taken place, and theforest cover has gradually increased to around11% of the total area mainly located in areas withlow population density and with soils vulnerableto erosion. These planted forests were dominatedby imported tree species, and their main purposewas wood production. During the last 200 years,forest management in Denmark has thus beenintensified and rationalised through for instancedraining and use of highly productive but alsoless adapted and thus unstable non-indigenoustree species in large, even-aged monocultures.

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Facts on Danish forests

Danish forest area 486.000 hectares, 11 % of the total area

Forest area pr. capita 0,1 hectare/cap.

Volume 45 million m3 conifer, 28 million m3 deciduous

Average annual increment (forecast 2000- 2009) 3,8 million m3 conifer, 1,3 million m3 deciduous

Annual felling (1999) 1,1 million m3 conifer, 0,6 million m3 deciduous

Annual wood consumption Approximately 8 million m3

Tree species 63,2 % conifer, 36,8 % deciduous

Ownership 72 % non-public and, 28 % public

Recreation More than 50 million annual visits in the forest

Historically, segregation of forest and agricultural landhas served as a successful tool in the reestablishment ofthe Danish forest cover

There is now only little natural forest left in Den-mark, and large parts of the forests are quite uni-form and often with limited value for biologicaldiversity protection and recreational purposes.36,8 % of the forests are deciduous, while theremaining are planted with non-native coni-ferous tree species. A recent development duringthe last 10 years is that the fraction of deciduousforest is now increasing, while it previously used

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to be decreasing. This development is triggeredthrough state afforestation, financial incentivesand a negative development in soft-wood prices.The Danish forest cover is still increasingthrough public afforestation and private affor-estation promoted through incentives. But still,Denmark is a relatively forest-poor country, withonly around 0,1 ha forest per capita, comparedto Sweden, where the number is 2,8 ha.

The fact that Denmark is intensively cultivatedfor agriculture means that the forests act as arefuge for the natural plant and animal life. Manyof the endangered plants and animals in Den-mark live only inside or in connection with theforests. The relatively extensive management re-gimes in the forests as compared to agriculture,with limited use of fertilisers and pesticides, alsomeans that they protect vital groundwater re-serves. And the forests can also act as climate-stabilisers by CO2-sequestration and by provid-ing CO2-neutral fuel.

1992: The United Nations Conference on Environ-ment and Development (UNCED), which adopted aForest Declaration, outlining principles for a globalconsensus on the management, conservation andsustainable development of all types of forests. For-est issues were also addressed in the Rio Declarationand in Agenda 21 Chapter 11.

1992: Adoption of the Convention on Biological Di-versity, which includes directions for conservation andsustainable use of biological diversity, including inforest ecosystems.

1992: The United Nations Framework Convention onClimate Change, and its Kyoto Protocol from 1997,including forests as a sink for greenhouse gasses,notably CO2.

1993: The Helsinki Pan-European Ministerial Confer-ence on the Protection of Forests. Resolution acknowl-edging the need to carry out sustainable forest man-agement and developing pan-european criteria andindicators for sustainable forest management. Theconference was followed-up by the Lisbon Confer-ence in 1998. Next conference will be in Vienna 2003.

1994: The United Nations Convention to CombatDesertification, including forest measures in combat-ing deforestation.

1994: The International Tropical Timber Agreement(ITTA) following-up on the previous agreement from1983 and focusing on linkages between tropical tim-ber trade and sustainable forest management.

1995-1997: Intergovernmental Panel on Forests (IPF).Recommendations and proposals for action.

1997–2000: Intergovernmental Forum on Forests (IFF).Expanded recommendations and proposals for ac-tion, including on national forest programmes.

2000-2005: United Nations Forum on Forests (UNFF),focus on implementation of IPF/IFF recommendations.

2002: Adoption of an Expanded Work Programmeon Forest Biological Diversity under the Conventionon Biological Diversity.

The national forest programme was developed indialogue with the forest users

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1.2 International forest policy processes

During the last decade, forests have been highon the agenda in various international fora, andsustainable forest management is now widely rec-ognised as an objective, which should be inte-grated into national forest policies, including na-tional forest programmes.

The main international processes providingguidance to national forest management plan-ning and operations are highlighted at page 10.

Not all recommendations emanating from themany processes are equally relevant to the par-ticular national situation in all countries, whichis also recognised in the text of the agreementsand recommendations. The specific Danish set-ting has made the Danish National Forest Pro-gramme focus on recommendations relatingmainly to:

• sustainable forest management in general;• protection of forest nature and biological

diversity;• public participation and use of the forests

through outdoor recreation;• improved economic framework conditions for

the forest sector;• international forest issues.

The Programme also constitutes part of the Dan-ish response to the recommendations of devel-oping a national forest programme before theWorld Summit on Sustainable Development inJohannesburg August-September 2002.

1.3 National implementation

In 1994, Denmark developed a National Strategyfor Sustainable Forest Management, based on theprinciples and guidelines laid out in the Rio For-est Declaration and the resolution from the Hel-sinki Conference. This Strategy also constitutedthe basis for a paper put forward to the DanishParliament outlining the Danish forest policy inlight of the Rio and Helsinki Conferences. TheStrategy underlined that the Danish model forsustainable forest management is not directedtowards individual forests or forest properties,but towards the country as a whole.

But society as well as forestry is constantlychanging. More and new international agree-ments and recommendations are developed, theUNFF-process clearly recommends developmentof national forest programmes, and an increasedparticipation of the general public in the devel-opment of national programmes and strategiesis a national priority. Therefore, it was decidedto up-date and expand the National Strategy anddevelop a national forest programme. Thepresent document is a condensed and adaptedversion of the Danish National Forest Program-me, which has been developed over a period of2 years (2000-2002).

It has been developed with the recommenda-tions from The Intergovernmental Panel on For-est (IPF) from 1997 in mind, in particular the onesdirectly relevant for Denmark. These are: 1) de-velopment of a national forest programme in-volving all stakeholders; and 2) development of anational forest programme including criteria andindicators for sustainable forest management. Theincreased knowledge and the experiences at na-tional and international level gained since 1994in the field of sustainable forest managementhave also been important to the process.

Myth, history, experiences, science: The cultural valueswill be conserved in the forest

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2. Visions for the national forest programme

Even though the Danish forest cover is relativelysmall, the forests are of great national impor-tance. The forests are islands of nature in a seaof agricultural fields and urban areas. They pro-duce high quality raw materials for industry, andharbour cultural heritage, landscape amenitiesand biological diversity, which is a part of thenational identity.

The ambitious overall goal of the Danish for-est policy is a combination of nature, produc-tion and recreational opportunities, which at thesame time increases biodiversity protection, con-solidates the possibilities for outdoor recreation,and ensures the future production potential ofthe forests.

The National Forest Programme is developedwith due regard to the Ecosystem Approach, asrecommended in the CBD Work Programme onForest Biodiversity (Element 1, Goal 1), includingconsiderations for agriculture and provision of“environmental goods”. It is also a direct follow-up to the IPF/IFF recommendations on develop-ment and implementation of holistic national for-est programmes, where an appropriate combina-tion of legislation, economic instruments and taxpolicies are utilised to promote sustainable for-est management, and which is consistent withnational, sub-national and local policies andstrategies. (IPF 17a, 58b(i); IFF 115a,b and c). Theprogramme is also responding to the call forcodes of conduct to the private forest sector con-sistent with the principles for sustainable forestmanagement (IFF 69a and 128c), and has boththrough the process leading to the programmeand in the programme itself responded to thecall for improved co-operation, co-ordination andpartnerships in support of sustainable forestmanagement by involving relevant stakeholdersin forest decision making (IPF 17b,f,h,i, 40e; IFF19b, 64b, 66, 140a).

Forests will be developed as a national welfare benefitthrough their role for popular health

Before 2040, a minimumof 10% of forest coverwill have biodiversity asthe most importantmanagement objective

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Based on the specific setting in Denmark and inthe light of the above international recommen-dations, the Danish National Forest Programmehas the following visions for the Danish forests:

• Forests which can deliver high quality woodproducts to society;

• Forests which offer good opportunities foroutdoor recreation, particularly near urbanaeas;

• Forests which harbour and conserve biologi-cal diversity;

• Forests which, by creating economic possibili-ties and rendering the rural areas attractivewith regard to nature and recreation, contri-

bute to maintaining residence in the ruralareas;

• Forests which strengthen landscape functionswith regard to biological diversity and land-scape amenities; and

• Forests which have environmental protectionfunctions, for instance protection of groundwater, production of renewable raw materials,and acting as CO2-sinks.

The vision for the forests emanating from thepublic debate and the policy is developed intosix main objectives of the programme as listedin table A on the following pages.

Innovative use of wood will be promoted

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Specific Objectives

• Develop and promote a conversion to near-to-nature forest management

• Conserve natural forest and nature in the forest,including wetlands and key biotopes

• Before 2040, 10% of the total forest area has bio-diversity conservation as the primary managementobjective

• Develop the potential of the forest sector to contri-bute to a number of environmental objectives,including policy objectives in climate and energy,e.g. limitation of the greenhouse effect (as per theKyoto Protocol), provision of renewable energy,ensuring clean groundwater, etc.

• Develop forest and wood products, markets and theindustrial and trade sectors

• Increase the use of forest and wood products andimprove the pricing and secondary values of these,among others through niche-productions andincreased visibility of the environmental qualities ofthe forest production

• Increase the awareness and knowledge about theeconomic possibilities in near-to-nature forestmanagement – including clarification on issuesrelating to the conversion phase

• Strengthen the opportunities for experiencingnature in the forests

• Conserve the cultural values in the forests• Develop dialogue, knowledge and awareness about

the functions and importance of the forests• Promotion of physical and mental wellbeing

through the interaction between forests and citi-zens, including the opportunities for outdoor recrea-tion and the use of forest products

Main Objectives

Environmental objectivesPromote efforts for the protection of biological diversityand secure the physical environment and the basis forforest management

Economic objectivesDevelopment towards increasingly economicallysustainable framework conditions for the forest sector

Social objectivesDevelopment of the role of the forests as a nationalwelfare benefit through the opportunities for thepopulation for using the forests to develop health andawareness

Table A Main Objectives and Specific Objectives

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Afforestation

The objectives for afforestation are maintained anddeveloped with a view towards strengthening of thepotential for natural habitats and processes in affores-tation

• Increase the forest area so forest landscapes cover20-25 % of Denmark after one tree-generation (80-100 years)

• The concept of multiple use forest managementwill be further integrated into the afforestation withdue consideration to production, biodiversity, out-door recreation, cultural heritage, landscape andenvironmental protection

• Increased co-operation with local actors, includingcitizens, organisations and authorities in the affores-tation efforts

• Strengthen and apply knowledge-building andknowledge dissemination on biological diversity,economy and social aspects of the forest, here-under needs and priorities of users and consumers

• Use the state forests to test and further developmanagement methods and operational principles,which can perform multiple tasks within a numberof areas, with a concerted and coherent strategy foroperations, cultivation, biological diversity, outdoorrecreation, cultural heritage etc.

• In a longer perspective, the objectives will bestrengthened by developing the forestry educationcurricula and adapting to the needs of the sector aswell as new trends in society

• Strengthening of a coherent monitoring of theforests

• Coherent efforts of a still more binding character ininternational negotiation fora supported by bilateral,regional and multilateral co-operation, trade,research, information and public informationnationally as well as internationally

• Coherence between national and internationalefforts, thus underlining positions on internationalforest relations with national actions

Knowledge

Efficient capacity building and information sharing inthe forest sector. Access to updated and relevantknowledge and experience as a basis for the forestpolicy through research, education, dissemination andinformation

Internationally

At global as well as regional scale to promote thedevelopment towards sustainable forest management,where protection of forest biological diversity andenvironment is integrated into the contribution of theforests to social and economic development

Main Objectives Specific Objectives

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2.2 Guidelines for sustainable forest2.2 management

In accordance with national forest policy objec-tives, all Danish forests are now encouraged toaim towards sustainable management and de-velopment.

This process was initiated in the beginningof the 1990’s as a follow-up to the Forest Princi-ples adopted in the UNCED Forest Declaration.During the following almost 10 years, the fol-low-up process has developed a set of guidelinesand indicators for different levels. In Denmark,broad consensus was reached in 2001 on a setof operational guidelines for sustainable forestmanagement at management unit level, based onthe Pan-European guidelines developed in min-isterial forest conferences. The guidelines areattached in Annex I.

The guidelines are based on the principles fornear-to-nature forest management, which has anoverarching economic goal in concert with a na-ture-friendly management approach. One of thecentral elements of the near-to-nature forest man-agement practices is to utilise the natural proc-esses, such as natural regeneration, to the maxi-mum extent. This can be done through:

• Selection of species well adapted to the localconditions, especially native species;

• Single tree management among the largertrees;

• Maintenance of the productivity, stability andregeneration potential of the forest by avoid-ing interventions which damage the climate,soil conditions and biodiversity of the forest– for instance clear-cutting and the use of pes-ticides;

• Utilisation of natural regeneration and natu-ral differentiation in the forest management;

• Development towards forests with a mixtureof different tree species in different agegroups.

Danish forest management has thus obtained acommon frame of reference for the managementof the Danish forests, which in this way havetaken a major step towards sustainable manage-ment.

The guidelines are a practical tool for the indi-vidual forest owners who wish to use sustain-able forest management practices in his/her for-est. Conversion to near-to-nature forest manage-ment is seen as a long-term exercise, where con-version of specific areas only takes place for in-stance at optimal rotation age or when standsare to be logged anyway, i.a. due to instability,health etc. Consequently, it will take one or moretree generations before a full conversion to near-to-nature management practices has beenachieved and even longer before the expectedecological effects have occurred.

The policy is to introduce and promote a conversion ofDanish uniform forest systems into near-to-natureforest management

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3. Legal and institutional framework

In general, in Denmark there are rather detailedrules for what any given forest owner is allowedto do in his/her forest. For instance, 85% of theforest area is registered as forest reserve andmust not be converted to any other land use.

The first Danish forestry regulation was is-sued in 1805. The present Forest Act from 1997has four primary objectives:

• Conserve and protect the Danish forests.• Improve the stability of the forest sector, the

ownership structure and the productivity.• Contribute to increasing the forest cover.• Strengthen the advisory service and informa-

tion on good and multiple use forest management.

It is thus to a large extent still based on the over-all objective to preserve the forest resource andits production potential, and reflects the histori-cal background, which was a major forest re-source breakdown in 1805. But from 1989, thepurpose of the Act is also aiming at multiple useof the forest, i.e. inclusion of nature, culturalheritage and recreational considerations. Multi-ple use forest management was introduced inthe Forest Act in 1997 as a mandatory provision.

The Act also established specific protectionof oak thickets and particular nature types (bogs,lakes etc.). All subsidy schemes for forest activi-ties were at the same time gathered under themain objective of attending to multiple use con-siderations in forest management.

In Denmark, the forest sector is under the ju-risdiction of the Ministry of Environment. Theresponsibility has been delegated to the DanishForest and Nature Agency, which also includes25 forest districts, which manage the 24% of theforest area owned by the state. The Ministry ofEnvironment also includes three public sector

research institutions with relevance to forestry.These institutions contribute significantly toknowledge building in the forest sector.

Among other ministries of relevance to theforest sector is the Ministry of Food, Agricultureand Fisheries, particularly due to the co-ordi-nating role of the ministry in the fields of landuse and plant genetic resources. The internatio-nal co-operation is mainly the responsibility ofthe Ministry of Foreign Affairs, and the work ofthe economic ministries is of importance to theeconomic framework conditions of the forest sec-tor.

The 14 Danish counties have a role in termsof forest management due to their responsibili-ties and authority in accordance with the NatureProtection Act and the National Planning Act.They are for instance responsible for designa-tion of potential areas for afforestation. The pri-vate forest owners are well organised in variouslocal and national associations. These associa-tions provide consultancy services to the forestowners (partly supported by the state) as well aspractical assistance and forest policy activities.A wide range of NGOs are active in the nationalforest debate, for instance WWF Denmark, theDanish Society for the Conservation of Nature,the environmental organisation Nepenthes, theDanish Outdoor Council, the Danish Hunters So-ciety, and the Danish Ornithological Society.

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4. Nature values, physical environment andbasis for forest management

The forests have an important function as pro-tectors of biological diversity and the ecologicalcycles, in particular those of nutrients, water andcarbon.

The main objective of the National Forest Pro-gramme is to promote efforts for the protectionof biological diversity and secure the physicalenvironment and the basis for forest manage-ment.

A particular effort will be made to develop anddisseminate information on the conversion tonear-to-nature forest management, and to con-serve and improve the nature of the forests, in-cluding wetlands, key biotopes, natural forestsand nature in the forests in general.

4.1 Status and existing policies

The Danish forests are generally small and frag-mented and with a mixed ownership structure.The forests predominantly consist of planted for-ests dominated by conifers (mainly pine andspruce) which are intensively grown and leavelittle room for biological diversity. These forestshave furthermore turned out to be unstable, andthe management regimes have effected a signifi-cant deterioration of specific nature types anddecline in species, particularly for those attachedto old growth deciduous forests and wet foresttypes. On some poorer soils loss of nutrients haseroded the basis for forest management activi-ties. However, compared to agriculture, forestryactivities are still quite environmentally friendlydue to the low intensity of tillage and use of pes-ticides and fertilisers.

By the ratification in 1993 of the Conventionon Biological Diversity, Denmark has obliged it-self to conserve and sustainably use the biologi-cal diversity of the country. The implementation

The forest fringe is an important habitat to be man-aged gently

The remaining natural forest will be conserved, includ-ing wetlands and key habitats

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is primarily through national legislation andstrategies and international (mainly EU) acts anddirectives.

The Strategy for Sustainable Forest Managementfrom 1994 outlined a policy framework forachievement of sustainable forest managementat national level. The general principle behindthe strategy was that economic, ecological andsocial objectives could be accommodated at thesame site at the same time without major con-flicts, leading to the concept of multiple-use for-est management. This is important in a low for-est cover country, where only small forest areaswill be available for each function, if the forestarea is divided into fractions each serving a spe-cific function. However, also some exceptions tothis general principle were introduced. One im-portant exception occurs in the Strategy forNatural Forest from 1992, which provides guid-ance on how to conserve the biological diversityof the forests, including the genetic resources.The primary means of implementation were des-ignation of untouched forests and old forest man-agement systems, for instance grazing forests,coppice forests and selection method cutting.

The Forest Act from 1997 contains general objec-tives for the functions of both private and pub-licly owned forests in protection of nature andthe environment, including conservation of bio-logical diversity. More specifically, the Forest Actregulate land-use and contains provisions re-garding good and multiple use forest practicesand, in concert with the Nature Protection Act, theForest Act ensures a general protection of spe-cific nature types, such as lakes and bogs.

The special provisions in the Forest Act fornature and environment protection in stateowned forests have resulted in a range of par-ticular guidelines for management of these for-ests, including conservation of natural forest, oldtrees and dead wood in the forests, guidelinesfor the use of pesticides and fertilisers, for mixedforests, etc.

Economic incentives aiming at management re-gime changes have played a major role in Dan-ish nature protection policies. The Forest Actfrom 1997 holds provisions for all the subsidyschemes for promotion of multiple use forestmanagement. These include: afforestation; rege-neration and management planning; outdoor re-creation; mapping of local soil conditions; keybiotopes and cultural heritage; and special man-agement regimes (untouched forest and tradi-tional forest management systems such as cop-pice), with the primary goal of biodiversity con-servation. At present, more than 6,500 ha aredesignated as untouched forest, and more than10,000 ha are designated for traditional manage-ment regimes, such as grazing forests, coppiceforests and selective cutting.

Through the implementation of the EU Direc-tives on protection of birds and habitats (Coun-cil Directive 79/409 on the Conservation of Wild

Natural forest is often restricted to marginal lands,slopes etc.

Coppice is a traditional forest management systemwhich should be maintained – in particular on locationswhere it contributes to a rich biodiversity

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Birds, and Council directive 92/43 on the Con-servation of Natural Habitats and of Wild Floraand Fauna), Denmark has designated nature pro-tection areas, which include forest areas.

4.2 Future efforts

The main task ahead for the Danish forest sec-tor is to maintain and support the developmentof the natural ecological structures and functionsof the forests, including species adapted to thelocal conditions, and in particular native species.Habitats for flora and fauna and the ecologicaland genetic processes taking place in the forestshould equally be protected and supported. A richbiological diversity will contribute to a strength-ening of the ability of the forests to resist natu-ral or man-made disturbances, for instance cli-mate change. It is thus important to reduce thestressing impacts on forest ecosystems.

The efforts will mainly be concentrated on de-velopment and dissemination of a conversion tonear-to-nature forest management and conser-vation and improvement of the nature values ofthe forests, including wetlands, key biotopes,natural forest and nature in the forest in gen-eral.

4.2.1 Near-to-nature forest managementThe concept of near-to-nature forest manage-ment is central to the forest programme. It is notsynonymous with the concept of sustainableforest management, but the two concepts areclosely related. Near-to-nature forest manage-ment is a narrower concept, which only relatesto the actual forest operations. If this forestryconcept is supplemented with a number of spe-cial considerations to ecological, economic andsocial factors, what is more broadly defined assustainable forest management is obtained.

The primary goal of near-to-nature forest man-agement is to ensure an economically sustain-able wood production through selection of spe-cies adapted to/adaptable to the local conditions.Maximum utilisation of the natural processes inthe forest ecosystem, such as natural regenera-tion and continuity in the forest cover, are otherprinciples to be applied. In this way, maintenance

and improvement of the forest climate and soilconditions, genetic resources and consequentlynatural regeneration potentials and productiv-ity will be supported. A forest managed underthese principles will typically consist of a mix-ture of different tree species in different agegroups, with a limited use of pesticides andother ancillary materials. It will be more robustand resistant to climate change, more biologi-cally diverse and have more functions in envi-ronmental protection.

Near-to-nature forest management is about establish-ing a structure of various species and ages

Hunting – recrea-tional activity andhuman predation tomaintain the ecologi-cal balance in theforests

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Furthermore, the near-to-nature forest manage-ment concept has a pronounced economic ob-jective. However, the Danish experience with theconcept is at present limited, and the possibleeconomic and environmental advantages anddisadvantages are intensively debated and inneed of additional research and developmentefforts.

In the state forests, an action plan for near-to-nature forest management will be ready by2004. It is estimated that full conversion to near-to-nature forest management can take place overa period of one tree-generation (80-100 years),and that the near-to-nature management princi-ples can be implemented in 24% of the total stateforest area within the first 10 years. This will bean important contribution to the total nationaldevelopment efforts.

For the private forests, the conversion periodis recommended to be longer. The means toachieve the conversion will be based on volun-tary action, dialogue, dissemination of informa-tion and knowledge, timber certification and insome cases voluntary agreements. A revision ofthe Forest Act will aim at providing a more flex-ible legal framework, and at the same time se-cure forest resources and a continued land usefor forestry. This is expected to promote botheconomic and ecological objectives in forest man-agement by giving forest owners the possibilityto fully utilise and develop the potentials in near-to-nature forest management.

The voluntary certification schemes, whichat present are under development in Denmark,prescribe near-to-nature forest management.These market-based schemes are expected togain more widespread use in Denmark in thecoming years, which will at the same time pro-mote near-to-nature forest management.

4.2.2 Conservation of biodiversity in the forestsBeyond the nature values of the forest areas perse, the Danish forests harbour smaller or largerpatches or elements, where the biological diver-sity is particularly valuable or have particularlygood opportunities for developing. Natural for-est, valuable genetic resources, untouched for-ests and old forest management systems withparticular nature qualities (grazing forest, selec-

tive cutting and coppice forests), key biotopesand wetlands etc. constitute an important partof the particularly valuable nature elements inthe forests. Several of these nature types, for in-stance in forest fringes, are also of great value towildlife.

The Danish Strategy for Natural Forests from1992 set up a long-term objective for designa-tion of 40,000 ha of natural forest, untouchedforest and old forest management systems by2040. This objective will now be further devel-oped by working towards before 2040 designat-ing 10% of the total forest area to be managed fornature and biological diversity purposes as theprimary management objective. This “biodiver-sity-forest” will harbour particularly valuable for-ests, which will be protected, as well as areas,which are sought developed with nature, biodi-

Traditional silvo pastoral systems provide biodiversityand amenity values in the forests

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versity or cultural heritage conservation objec-tives in mind. Also EU Habitat-areas will be con-sidered within this context. Designation of un-touched forest and areas subject to old forestmanagement systems will be applied in these ef-forts.

The main steps towards designating biodiversity-forest will be:

• by the end of 2003, an account of the specificnature values to be protected by designationof biodiversity-forest will be drafted, includ-ing an assessment of the present Danish

nature forest concept aiming at a more focusedimplementation with clear priorities andbroad support among forest owners and man-agers;

• by 2004, a report which identifies and evalu-ates a gross list of potential areas for designa-tion as biodiversity-forest, including consid-erations on implementation of internationalconventions and EU directives;

• by 2010, 10% of the state forests will be desig-nated as biodiversity-forests, and the progresstowards 10% biodiversity-forest at a nationallevel in 2040 will be evaluated.

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5. Forest resources and economy

A major element of the forest policy is to securea sustainable economic framework for the forestsector. The results of forest management acti-vities must at least pay-off the resources in termsof capital and manpower, which have been in-vested into these efforts. This will enable theforest sector to implement sustainable forest ma-nagement, including objectives for outdoor re-creation and biological diversity.

5.1 Status and existing policies

At an international scale, the Danish forest sec-tor is small in scale and non-homogenous withregard to tree species composition and quality.The resource is not subject to any significantstrategic interest from international forest indus-tries. During the last years timber prices havebeen declining in the region eroding the eco-nomic conditions for the sector.

Small units and a low degree of refinementdominate the primary Danish wood processingindustry, and generally it has a low competitivepower. The secondary wood processing indus-try (furniture, building materials, energy etc.) iseconomically more important, but also less de-pendent on domestic wood production. If pri-mary wood processing industries are closing dueto increasing economic constraints, timber fromDanish forests need longer transports from for-est to industry, which will increase costs andthus further erode the economic basis for forestmanagement activities in Denmark.

In this situation, many private forest ownersare opting for production of Christmas trees anddecorative greenery as a major alternative sourceof income. However, even this market seems toapproach a state of saturation, and the produc-tion is less environmentally benign than tradi-

tional forest management and can only take placeon a limited fraction of the forest area.

Central to the development of the economyof the forest sector is the question whether it ispossible to introduce new lifestyle and niche pro-ductions in the Danish forest and wood indus-try which can ensure a sound economic basisfor the trade. The “Product DevelopmentScheme”, which was initiated in 1994 and is di-rected towards the primary forestry and woodindustry, has so far yielded good results. Fur-thermore, subsidies have been provided for af-forestation activities and promotion of multipleuse forest management, including conversionfrom conifers to deciduous tree species and pro-tection of natural forest.

The Danish state forests are an important ac-tor in the national timber market, and the eco-nomy of the National Forest and Nature Agencyis closely linked to timber prices. Therefore, thestate forest operations also have an interest inthe development of the market situation, and thestate forest districts often act as a buffer in timesof turbulent market conditions, for instance af-ter extensive windfalls as it occurred in Decem-ber 1999.

5.2 Future efforts

The Forest Act will be revised 2002- 2004 aimingat more flexibility and degrees of freedom in for-est management activities. This is expected tohave a positive effect on the economy of the for-est sector through enabling forest owners andmanagers to develop and take advantage of thefull economic potential of near-to-nature forestmanagement. For instance, the revised forest leg-islation will promote natural regeneration.

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Grazing as weeding. Sheep can reduce the dependenceon pesticides in the greenery production

5.2.1 Practical implementation of near-to-nature5.2.1 forest managementWhile the state forests will be obliged to imple-ment the principles for near-to-nature forest man-agement, the conversion will be voluntary in theprivate forests, though the Forest Act will encour-age the concept aiming at a long-term conver-sion phase. In this context some considerationsneed to be addressed in the follow-up:

• the limited experience in Denmark with mixedspecies stands, particularly in areas in Jutlanddominated by recently planted forests;

• the long-term changes in the availability oftimber;

• the possible changes in quality of timber fromthe forests;

• the increased diversity of timber products;• the changes in production- and transport con-

ditions;• the need for development of new planning

systems;• the fact that natural regeneration in some

areas can be hampered by high numbers ofgame;

• production of Christmas trees and decorativegreenery will be maintained, but should be de-veloped towards being environmentallyfriendly.

5.2.2 Economic incentivesEconomic incentives available for the forest sec-tor will be targeted at promoting the objectivesof the forest programme. Timber certification isgaining ground as an instrument for promotionof sustainable forest management. Certificationis an instrument based on private initiative. How-ever, the government may promote transparencyand participation in the processes through dia-logue with the certification organisations. It isimportant that the certification schemes are cost-effective and appeal to the consumers to an ex-tent where compensation for the extra costs in

connection with certification can be achievedthrough better pricing.

Several of the environmental advantages as-sociated with forest cover, for instance ground-water protection, carbon sequestration and ac-cess to outdoor recreation close to urban areas,need to be promoted, and the economic poten-tial of these benefits should be explored, nota-bly:

• as the negotiations on implementation of theKyoto Protocol are progressing, all modalitieson how CO2-sequestration in the forests is tobe included in CO2-accounting will be clari-fied, and subsequently national measures willbe set up in order to take advantage of thisinstrument;

• the possibilities for co-operation betweenwater plants and the forest sector in terms ofafforestation and reduced application of pes-ticides and fertilisers in particularly sensitiveareas will be further explored;

• efforts to re-establish forest which fell in thehurricane in December 1999 will continue inthe coming years, including the subsidyschemes.

Mainstream Danish forestry year 2000 – a patchworkof uniform stands

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6. Outdoor recreation

One of the objectives of the National Forest Pro-gramme is to develop the forests as a nationalwelfare benefit through their role for popularhealth and awareness by providing opportuni-ties for nature experience and outdoor recrea-tion. This is particularly important since mostDanes live in densely populated areas – 85% livein urban areas. In this context, the state ownedforest and nature areas – covering 4% of Den-mark – play a key role.

6.1 Status and existing policies

In publicly owned forests public access is per-mitted by foot all over the forest 24 hours a day.Since 1969 private forests have been open forpublic access on roads and pathways from 7amto sunset. Today even access by horse and bicy-cle is permitted.

In the 25 state forest districts, outdoor rec-reation is a highly important management ob-jective. The state forest districts, and many pri-vate forest districts, have established various fa-cilities for public use such as playgrounds, sim-ple camp sites, information boards, visitor cen-tres, barbecue sites, bird watching towers etc. Ingeneral, dissemination of information and guid-ance are important elements of the daily work offorest staff. Each year, more than 500,000 peo-ple participate in ranger activities focused on for-ests. Around 40 nature schools have been estab-lished in the state forest districts, forest kinder-gartens are increasingly popular, and a conceptof “school forests”, where forest owners – pri-vate as well as public - on a voluntary basis maketheir forest available for local schools for educa-tion purposes, has been developed.

6.2 Future efforts

The objective is that forest landscapes shall cover20-25% of Denmark after one tree generation (80– 100 years). In this process, considerations foroutdoor recreation should be taken as early aspossible. Establishment of forests near to urbanareas will be promoted, and particular attentionwill be given to establishment of forests with agreater nature content and more species varia-tion than in traditional planted forests.

Outdoor recreation opportunities should beintegrated into the overall spatial and urban plan-ning exercises through dialogue and public par-ticipation, also in order to prevent negative in-fluence on nature and the environment.

In 2001 a commission under the Danish For-est and Nature Agency analysed existing rulesand procedures for public access to nature, andcame up with a set of recommendations, includ-ing increased access to private forests. These rec-ommendations are currently subject to furtherdialogue and voluntary implementation.

The increased focus on nature and forest asa welfare benefit is an additional challenge forthe state forests districts. Most guidance, edu-cation and dissemination of information on na-ture are presently based in the state forests. How-ever, also private forests are participating. Par-ticular focus will be put on children and youth,and the Internet will be used increasingly forinformation and dissemination purposes. Localauthorities, institutions, schools and associa-tions will be involved including involvement inspecific on-the-ground projects linked to forestmanagement tasks. Special attention will also bepaid to the particular requirements of disabledpeople.

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Easy access to the forest is a prerequisite for natureexperience and outdoor recreation

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7. Afforestation

It is an objective of the forest programme to in-crease the forest area so that forest landscapescover 20-25 % of Denmark after one tree-genera-tion (80-100 years). Since 1989 it has been a for-est policy objective to double the forest area –corresponding approximately to obtaining a 20-25% forest cover. While this objective was origi-nally triggered by agricultural over production,the focus is now on nature values and opportu-nities for outdoor recreation. Action proposal129a from IFF deals with encouragement of co-operation and co-ordination of activities withregard to forests and trees in environmentallycritical areas. This is well integrated into the Dan-ish afforestation efforts.

7.1 Status and existing policies

In 2000 the past 10 years of the Danish affores-tation efforts were evaluated. It was concludedthat while the overall quality was rather good,more emphasis should be put on nature consid-erations. Furthermore, the afforestation effortsare running behind schedule. If the forest areais to be doubled within a tree generation, 40,000– 50,000 ha should be afforested over a periodof 10 years, but afforestation has only reached30-35% of this target. This is mainly due to thehigh cost level associated with afforestation ac-tivities in publicly owned as well as private for-ests, and competition with other land-uses,mostly agriculture, which eventually constrainafforestation efforts.

7.2 Future efforts

The efforts to achieve 20-25% forest landscapeswill continue. But biodiversity and recreational

objectives will to a larger degree be taken intoconsideration, and the principles of near-to-na-ture forest management will be used as the ba-sis for afforestation operations. It is thus recom-mended that a larger proportion of the areas des-ignated for afforestation should be left to natu-ral succession and regeneration processes. Whenplanting new forests, seeds and plant materialof preferably indigenous species, and specieswhich are well adapted to the local conditions,should be selected. The location of the new for-ests should also be decided with due considera-tion to the need for landscape corridors andamenity. These principles are well in accordancewith the proposals for action from IPF and IFF, inparticular IPF 58b (i,iii and v) and 58c, and IFF30b and 129c dealing with requirements of coun-tries with low forest cover.

Previous experience has shown that economicincentives are a prerequisite for afforestation onprivately owned land. The challenge now is toreduce the costs and mobilise alternative finan-cial sources. Natural succession and regenera-tion may reduce costs. Alternative financing mayinclude CO2- sequestration, groundwater protec-tion measures and co-financing in order toachieve recreational values, air quality improve-ment and protection of the aquatic environment.

Future subsidised afforestation efforts willcontinue to prioritise size, continuity with exist-ing forests, localisation, landscape considera-tions and proximity to urban areas. In the stateforests afforestation areas will, in addition to thepreviously mentioned priorities and considera-tions for cultural heritage and nature content,also take into consideration areas where the for-est cover is relatively low. A larger proportion ofthe afforestation will take place via natural re-generation and succession processes and usingminimum tillage.

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The national policy of increasing the country’s forestlandscape to 20-25 % of the surface will be main-tained and the multipurpose approach will beemphasised

The availability of land for afforestation is highlyinfluenced by market prices and European Unionagricultural policy

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8. Capacity building and awareness raising

Forest research and development are importantissues within the context of international forestpolicy. Considering the limited size and eco-nomic importance of the Danish forest sectorconsiderable efforts have been put into researchand extension services. The Forest Programmeaims at a well functioning capacity building sys-tem and information sharing in the forest sec-tor. Access to updated and relevant knowledgeis seen as the basis for the forest policy, and willbe achieved through research, education, dis-semination and information efforts.

The linkage between forest research and for-est policy processes is seen as particularly im-portant for a sound development of the forestsector. This is well in accordance with proposalsfor action from IPF (58b(vii)) and IFF (96c). Fur-thermore, the resolutions from the MinisterialConferences in Helsinki (1993) and Lisbon (1998)also establish that the European countries areobliged to improve and adapt the national forestmonitoring programmes to the need for docu-mentation of sustainable forest management op-erations. This will be put into practice throughfor instance:

• following and documenting the conditionsand development trends in the forests;

• documenting the multiple functions of theforests (wood production, forest health, bio-logical diversity, outdoor recreation);

• substantiate that the established goals havebeen fulfilled.

8.1 Statistics

Currently, statistics of import and export, log-ging, prices, employment etc. in the forest sec-tor are made available annually. Forest health is

also monitored. A national forest inventory com-piled every 10 years is the most important sta-tistical tool in the Danish forest sector. The sta-tus of the latest inventory is from 2000.

A new National Forest Inventory will now beimplemented. This inventory will be based on agrid of permanent plots, where not only data re-lated to production is recorded. Also data relatedto nature content and species and habitat con-servation of various forest management practicesetc. will be included. The resulting system willcomply with the action proposals from IPF (89b)and IFF (17a, 121a and b) regarding preparationof national information on sustainable forest ma-nagement.

Man and nature inthe past, at presentand in the future. Thedynamics of land useand landscape is animportant issue fornature interpretation

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8.2 Research and development

During the past 10 years a number of Danishforest research institutions have been mergedinto one, the Danish Forest and Landscape Re-search Institute, under the Ministry of Environ-ment. In parallel to this, most of the forest-re-lated research at the Royal Veterinary and Agri-cultural University are merged into one institutein close collaboration with the Forest and Land-scape Research Institute. Additionally, the twoinstitutions have entered into a partnership withthe Forestry College, which trains i.a. forest andlandscape engineers, in order to create a coher-ent capacity building and research effort in theDanish forest sector. This partnership has re-cently been appointed European knowledge cen-tre for urban forestry under the European For-est Institute.

In the coming years, forest-related research willin particular be concentrated on:

• Environmental economics and environmen-tal sociology;

• Environment and health, including outdoorrecreation;

• Sustainable use of natural resources, includ-ing development of near-to-nature forest man-agement practices;

• Environment and energy technology;• Consequences of climate change.

8.3 Education

A wide range of training and education institu-tions services the Danish forest sector. In gen-eral, the research and training institutions arewell adapted to the general trends in the sectorand have gradually been moving away from onlyfocusing on production towards a wider rangeof topics with a broader relevance to society. Thespectre from basic vocational training to Ph.D.is covered by one continuous system. The con-tinuation of the adaptation to present and fu-ture challenges in Danish forest management arethe main task ahead for the educational sectorrelated to forest management. The internationaloutlook should also be maintained and further

In a country with 85 % of the population living in cities,urban forestry becomes an important feature – inpolicy, local administration and research

The holistic approach to forest management should befurther researched, developed, disseminated andtaught to students

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developed, including carrying out high levelcourses in English, thereby facilitating the par-ticipation of foreign students. These efforts arealso well in accordance with the recommenda-tions from IFF and IPF with regard to capacitybuilding in national forest programmes as wellas technology transfer recommendations.

8.4 Information sharing and dissemination8.4 in the forest sector

In spite of the modest size of the Danish forestsector, many dissemination and informationsharing activities are taking place. Owners, ad-ministrators and managers of forests are theprimary target groups, and as most of the pri-vate forest owners have no forestry related edu-cational background, a particular challenge is tocater for professionals and non-professionalsalike. A wide range of publications (printed aswell as Internet-based) from various sources aretargeted at different interest groups.

One of the major means to achieve thechanges in the forest sector outlined in the For-est Programme will be information and dissemi-nation. Mutual trust and dialogue are essentialto the success of the implementation of the ob-jectives of conversion to near-to-nature forest

management practices, protection of forest na-ture and biodiversity, and strengthened oppor-tunities for outdoor recreation in the forests. Thisis particularly important in the ¾ of the Danishforest area, which is privately owned. It will thusbe a major challenge for the Danish forest con-sultant organisations to integrate into their ac-tivities information and dissemination aboutnear-to-nature forest management and the eco-nomic potentials the concept offers.

Low soil pressure and excellent manoeuvre perform-ance of the felling equipment is an important elementof sustainable forest management when it comes tooperational terms

Small dimension timber originating from coppicemanagement can be utilised as firewood or otherproducts for local consumption

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9. International activities

The overall international objective for the Dan-ish National Forest Programme is to promote thedevelopment towards sustainable forest manage-ment at global as well as regional level. Protec-tion of forest biological diversity and environ-mental considerations should be integrated intothe contribution of forests to social and economicdevelopment.

Forests cannot be seen solely as a national con-cern. Their importance to biodiversity, climateand development are of global interest. The pre-sent rate of deforestation in developing coun-tries is of serious concern, but even though theawareness of the importance of conserving theforests is gradually increasing, the capacity tocope with the problems is often very limited.

At present, important fora for global dialogueare the United Nations Forum on Forests (UNFF),the Convention on Biological Diversity (CBD), theConvention to Combat Desertification (UNCD) andthe United Nations Framework Convention on Cli-mate Change (UNFCCC) and its Kyoto Protocol.Denmark is also actively participating in discus-sions in the UN Food and Agricultural Organisa-tion (FAO), the International Tropical Timber Or-ganization (ITTO) and in various programmeswithin the context of for instance the Consulta-tive Group on International Agricultural Research(CGIAR) which among other things includes re-search institutions dealing with forestry, agro-forestry and plant genetic resources, and the Glo-bal Environment Facility (GEF) which financesprojects related to conservation of forest biologi-cal diversity. As a member state of the EuropeanUnion Denmark is co-ordinating with the otherEU member states in international negotiationson forest, and Denmark is actively participatingin forest policy activities within the context ofthe EU.

9.1 Existing objectives and means

The Danish National Strategy for Sustainable De-velopment from 2002 states that “Denmark willcontinue the efforts towards a still more bind-ing international co-operation within the forestsector through international agreements and con-ventions. Denmark will follow up on interna-tional agreements, promote sustainable forestmanagement and make Danish experience avail-able to others. The Danish development- and en-vironmental assistance shall contribute to theimplementation of international conventions,agreements and recommendations with regardto forests and nature in the recipient countries.Furthermore it is to be ensured, that the con-sumption and import of wood products willpropriately consider products, which have beensustainably and legally produced. One measurein this context would be strengthening the ef-forts towards timber certification”

In the international negotiations, Danish keyissues have been promotion of national forestprogrammes, criteria and indicators for sustain-able forest management, and evaluation of thepossibilities for financing sustainable forest man-agement. Certification of wood and other forestproducts is recognised by IFF, IPF, UNFF and CBDas a useful means to promote sustainable forestmanagement, and Denmark has worked for agreater co-ordination of the international certifi-cation schemes.

The Danish development and environmentalassistance is closely co-ordinated with the recipi-ent countries. Environment is a crosscutting is-sue in the ordinary development assistance andthe primary objective of the environmental as-sistance. The forest sector in developing coun-tries has been supported through capacity build-ing and institutional strengthening, awareness

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raising, training and education, demonstration-and pilot projects, and support to legislativeprocesses and protection of particularly valuableand vulnerable forest areas. In Eastern and Cen-tral Europe, the Danish support has focused onbiodiversity protection, sustainable forest man-agement, outdoor recreation, public participa-tion, consultative services, urban forests, etc. Thewide range of Danish forest educational institu-tions and extensive research capacity has alsobeen employed in twinning arrangements withinstitutions in developing countries.

9.2 Future efforts

The objectives of the new Danish National For-est Programme with regard to the internationalaspects (outlined in Table A) do not differ muchfrom previously agreed objectives. They are alsowell in accordance with various recommenda-tions from IPF and IFF, in particular IPF recom-mendations 71a and b. Denmark will thus alsoin the future be working internationally basedon the following principles:

• Concrete implementation of internationalrecommendations and resolutions, in anincreasingly binding co-operation;

• Strengthening of the co-operation betweenconventions and organisations etc. in orderto ensure more efficient efforts and exploitthe possibilities for synergy;

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Denmark will take an active role in the dialogue on thepromotion of sustainable forest management – nation-ally, regionally and globally

• Promotion of the connection between tradeand sustainable forest management;

• Continue the use of sector-integrated devel-opment and environmental assistance;

• Continue to ensure that sustainable forestmanagement benefits poor local communities,including indigenous people;

• Realising that Denmark is a small country withlimited resources, relevant fora will be scruti-nised in order to select those in which Den-mark can pursue its goals most efficiently.

It is furthermore of high priority to contributeto the establishment of clear criteria of successfor the work of UNFF, further promote the devel-opment of national forest programmes focusingon sustainable forest management, ensure thatthe work in UNFF for sustainable forest manage-ment is integrated into the framework of the

Kyoto Protocol, the CBD and the Convention toCombat Desertification, and to work towardsstrengthening the co-operation in the Collabo-rative Partnership on Forests.

With regard to the Kyoto Protocol, Denmarkattaches great importance to developing imple-mentation modalities which ensure that futureCO2 sequestration in the forests does not under-mine the overall objectives of emission reduc-tion. Denmark supports the interaction betweenclimate policy and forest policy and sustainabledevelopment goals. In the framework of the Con-vention on Biological Diversity, a forest work pro-gramme has recently been adopted (April 2002).The programme is well in accordance with theDanish priorities for action and implementation.It is also of high priority for Denmark to inte-grate the forest sector in other relevant policyareas in the European Union.

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10. How the Danish national forest programmewas developed

In accordance with the principles in the AarhusConvention for openness and dialogue in envi-ronmental decision making and the recommen-dations from IPF and IFF, the Danish NationalForest Programme has been developed throughextensive consultations involving all relevantstakeholders, including a public hearing proc-ess. The process was initiated by a broad publicdebate (including Internet debate) on how wewant our forests to look, and how we want touse them. Thematic meetings, a conference, ex-cursions and discussions have been undertakenwith participation of a wide range of stakeholders,and the Programme has been widely circulatedfor comments in a public hearing process. Re-sults from recent research projects were alsoincluded in the programme development.

The debate revealed that the general Danishpublic is more interested in the recreational as-

pects than the production related aspects of for-est management. Forests with a varied structure,a rich fauna and calmness seem to be the pre-ferred type. The more professional part of thedebate revolved around protection of natural for-ests, designation of untouched forest areas andforest grazing.

The experiences from this exercise show thatefficient methods for public participation in theforest sector have to be developed, and thisshould be taken into consideration in the imple-mentation of the programme.

The National Forest Programme was devel-oped 8 years after the Strategy for SustainableForest Management. Probably modern forest po-licy making requires updating at intervals of lessthan 10 years. Thus the National Forest Program-me is expected to be replaced or revised before2012.

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The guidelines for sustainable forest manage-ment are based on the principles for near-to-na-ture forest management.

Near-to-nature forest management has a clearfinancial aim and also entails that forest man-agement can be planned in support of continu-ity of the forest through facilitating natural re-generation in the future. This means that thechoice of species will be based on ecologicaladaptability to the site, a fact which will promoteuse of site-adaptable trees and shrubs, particu-larly indigenous ones. A forest where near-to-nature forest management is applied will typi-cally consist of a mixture of many different treespecies, comprising many different age groups.Near-to-nature forest management also meansthat use of ancillary substances and materials isminimised or avoided altogether. Near-to-natureforest management supports and strengthensgeneral forest health and durability, resistanceagainst climate change, biodiversity, and envi-ronmental protection.

Finally, near-to-nature forest management willcreate attractive forests with a high degree ofcontinuity, thereby strengthening the socialfunctions of the forest, e.g. their use for outdoorrecreation and general awareness raising on na-ture.

It is, however, clear that even “nature-friendly”,near-to-nature forest management cannot standalone in its classic form. It must be supplementedby a range of special measures aimed specifically

Annex I: Danish guidelines for sustainable forestmanagement at management unit level

For historical reasons, the Danish forest forms mosaicpatterns in the agricultural landscape. The forest coveris 11% of total area

at promoting the economic, ecological, and so-cial aspects of sustainability.

In general, it is recommended that conver-sion should only commence when a standreaches its optimum rotation age, or in connec-tion with necessary felling of existing stands,when conversion is technically feasible and fi-nancially beneficial. As a result, it will take oneor more generations of trees before a full con-version of all forests into near-to-nature struc-tures has taken place. Correspondingly, it willalso take a long time before the expected eco-logical effects fully materialise.

The ecological aspect is to be strengthenedby designating stands or forests as “untouched”areas, by taking steps to secure key biotopes, byrehabilitating “natural” wetlands, and by lettingdying and decaying dead trees remain in the for-est (guideline 11).

Among other things, the social element entailssteps to preserve cultural heritage (ancient monu-ments, old management regimes, etc.), good work-ing conditions for employees and excellent scopefor outdoor recreation. It is a well-documentedfact that forests are an important setting for peo-ple’s outdoor recreation, which means that theyconstitute a significant aspect of Danish welfare.This function should be strengthened by meansof good access conditions in forests, e.g. by es-tablishing and maintaining roads and pathways,by establishing open-air facilities and areas formore intensive outdoor pursuits (guideline 12).Finally, the economic aspect is addressed throughthe opportunity to use parts of the areas for in-tensive management systems, which are not inaccordance with near-to-nature principles (guide-line 13).

The guidelines are voluntary. They can be ap-plied at stand, forest, or management unit level;i.e. to forest reserves as well as to areas where

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no forest reserve restrictions apply. The guide-lines can also be applied to forests establishedon farmland (afforestation).

The forest management should be based onthe concern for the multiple uses of the forest,i.e. the forests should be managed with a viewto maintaining or improving production of woodand other products, as well as maintaining orimproving the nature, the historical and culturalvalues, and environmental and recreational func-tions of the forests.

Guidelines 1-10 describe a range of principlesand considerations which will ensure that day-

to-day forest management activities develop ina near-to-nature direction. These guidelines arethen supplemented by a number of specific so-cial, ecological and economic elements in guide-lines 11–13. These are special considerations,which do not necessarily form part of the day-to-day routines of standard working. Guidelineno. 13 also addresses special, intensive manage-ment systems. Through near-to-nature forestmanagement and by observing a number of so-cial, ecological, and economic considerations,these guidelines will pave the way for sustain-able forest management.

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Guidelines:

1) Ensuring production and the basis for forestmanagement

a) The permanent forest cover and forestclimate can be maintained and improvedby reduced use of clear-cutting and byretaining sufficient biomass on the site.

b) The tree species selected should ensure ahigh and stable production of wood andother forest products while maintainingthe fertility of the soil.

c) The potential of the soil to yield nutrientsthrough decomposition of minerals mustbe taken into consideration when nutrientsare extracted as a consequence of logging.However, such extraction of nutrients maybe compensated, including loss of nutri-ents caused by leaching. Nutrients receivedfrom the surrounding environment mustbe included as a part of this compensation.

d) During the conversion phase the fertilityof the soil may be re-established if it haspreviously been degraded as a result ofoverexploitation, and where no particularinterest is depending on the poor nutrientstatus of the site.

2) Establishment of a broad and stable supplyof various products

a) Forest management should encourage theproduction of high-quality timber andother products. However, exceptions mayoccur on low-productive sites and onlocations where particular concern tonature or cultural interests makes pro-duction less feasible.

b) The forest should be structured to com-prise various tree species of varying ageson each site.

3) Use of locally-adapted species andprovenances

a) The use of indigenous species and locallyadapted provenances should be encour-aged as much as possible.

b) Non-indigenous species may be usedwhere they are adapted to the site and donot pose a threat to the biological values ofthe forest.

c) Advantage should be taken of the naturalvariation of the site in obtaining a variedselection of tree species.

4) Promotion of species mixturesa) Natural succession processes and a mix-

ture of tree species, including species asso-ciated to the main species, should be pro-moted.

b) Rare indigenous species should be pro-tected or supported.

5) Promotion of natural regenerationa) Where species and provenances are adap-

ted to the site, natural regeneration shouldbe applied.

b) Where local experience and site conditionsare in favor of a change of species and/orprovenance or enrichment with additionalspecies, planting or sowing should takeplace.

c) Forest stands with a potential for naturalregeneration should, in principle, beregenerated without clear-cutting. How-ever, open spaces in the forest may beestablished, where particular conditionsmake it desirable to initiate regeneration,or where this is beneficial for recreative oraesthetic reasons.

d) Where clear-cutting still takes place, nega-tive effects should be reduced through, forexample, maintaining natural regenerationin the area.

e) Logging aiming at regeneration should nottake place until the stand has reached nor-mal rotation age, unless the area is subjectto special management regimes as forexample coppicing. Where the stands con-sist of trees of various ages and heightslogging should be carried out on a tree bytree basis.

f) The aim is that natural regeneration with apotential to develop into new forest willpermanently be present in each area form-ing a basis for the forest generation tocome.

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6) Improvement of forest structure, includingforest fringes

a) Forest management should, in general,promote types of forest regeneration,which will ensure permanent canopy cover.

b) Forest management should support de-velopment of a natural variation in speciesand structure.

c) Where local conditions make it feasible,near-to-nature and stable forest fringes orsimilar structures with a high fraction ofindigenous species neighboring openfields, along roads, firebreaks, streams andlakes, etc., should be established and main-tained as a natural and integrated part offorest management.

d) Characteristic old trees from original forestfringes should be maintained when theforest is delineated by afforestation.

7) Organic and biological plant protectiona) With the aim of gradually eliminating appli-

cation of pesticides1, management systemsrelying on pesticides should be subject todevelopment in this direction during theconversion phase.

b) The use of silvicultural and biotechnicalmethods for the control of pests shouldbe promoted.

c) Recreational activities causing stress to theforest may be regulated in order to protectparticularly vulnerable areas.

8) Ecosystem-adapted wildlife managementa) Wildlife management should comply with

multiple use management. This also ap-plies to selection of locally adapted treespecies and natural regeneration.

b) Fences may be raised when required for astable and varied high-quality regene-ration.

c) Possible measures to benefit wildlife, suchas feeding crops and pastures can be ap-plied as part of normal forest managementpractices, possibly associated with cutting

vegetation in open areas, along tracks, andthrough using coppice forest and un-touched forest as wildlife refuges.

d) Feeding crops should be grown on arableland. Where exceptional needs are present,feeding crops could be grown at storagesites for timber, in firebreaks and othersmall open areas.

e) Fencing for grazing livestock in the forestshould not block or hinder the passage ofwildlife.

9) Ecosystem-adapted forest managementtechniques

a) Logging, transport and regeneration tech-niques which spare/protect the site and thestand should be applied.

b) Soil preparation should be limited to theextent possible.

c) Litter and humus layers in forest floorsshould be preserved to the extent possibleduring regeneration and other forest ma-nagement activities

d) Due regard in management should be paidto historic sites and cultural heritage.

e) Attention should be paid to nature values,environment, historic sites/cultural heri-tage and outdoor recreation activitieswhen establishing and maintaining forestinfrastructure.

f) Good working and transport lines in theforest and in individual stands should beensured.

g) Fire protection schemes are recommendedand firebreaks should be established atvulnerable sites.

10) Registration, planning, information andtraining

a) The owner of the forest and his employeesshould hold the best possible knowledgefor supporting sustainable forest manage-ment. One measure in this context wouldbe to register 1) the utilisation of the forest(production as well as recreation), 2) public

1 “Pesticides” in these guidelines are primarily industrially manufactured substances which have a documented, toxic effect on certain livingorganisms, plants, animals or fungi. Not included are such substances approved for use in organic farming, spread-on repellants whichinvolve only a limited exposure to the surrounding nature, and pheromones, which are only used as a source of smell.

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regulations (conservation areas, etc.) 3) keybiotopes 4) historical sites etc.

b) The forest owner and his employees shouldbe ready to enter into a dialogue on forestmanagement with the local communityaiming at the optimal use of knowledgeavailable on the ecology and history of theforest and dissemination of information onthe objectives of the forest management.

c) The owner of the forest supervises andmonitors forest management and mustensure that employees as well as con-tractors carry out their tasks in a safe andqualified manner in compliance withcurrent guidelines for forest management,including the relevant legislation.

11) Special measures to promote and ensurebiological diversity

a) Areas should be designated as untouchedforest where 1) the conservation of uniquebiological values requires that the forest isleft unmanaged, 2) where untouched forestsupports networks (e.g. corridors) in thelandscape and 3) where it is to be con-sidered feasible based on an ecological andeconomic assessment.

b) A number of trees should be left naturallydying and decaying in managed forest(nesting trees and deadwood).

c) Key biotopes should be considered whenplanning and carrying out forest operations.

d) Lakes, ponds, streams, bogs, heathlands,coastal meadows or marshes, water-meadows and commons associated with theforests, which have been altered throughdraining or other interventions, should bere-established to their original state, takinginto consideration the economic possi-bilities. However, if the established drainagesystem is of importance for the stability ofthe existing forest system, it may be main-tained.

12) Securing and improving particular forestfeatures

a) Particular features and functions of theforest should be secured and improved. Forexample, scenic views may be kept free ofgrowth, and the landscape features must

be considered when planning for affores-tation.

b) Forest management must ensure protec-tion of important historical relics.

c) Coppice forest and other old forest manage-ment regimes of particular cultural, his-torical, biological value, or value for thelandscape, should be continued accordingto the original principles.

d) Opportunities for outdoor recreation andnature experience in the forest should besecured and improved by i.a. easy access,including the establishment of roads andpathways, clearing of scenic views anddesignation of particular sites for moreintensive recreational activities.

13) Particularly intensive types of operationa) At smaller areas intensive management

regimes could be applied, e.g. productionof Christmas trees and decorative greenery.Location and management of such activitiesshould be developed towards more natureand environmentally friendly principles.Use of pesticides and compensationfertilization should be minimized. This typeof production cannot be considered asbeing in accordance with near-to-natureprinciples.

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