Topic Area: Deforestation
Geographic Area: Nepal
Focal Question: What are the historical causes of
deforestation in Nepal and what is the current situation?
Sources:
(1) Metz, John. "A Reassessment of the Causes and Severity of Nepal's
Environmental Crisis." World Development 19.7 (July 1991):
805-20.
(2) Salamat, Ali. "Economic Squeeze: India ends transit agreement for
Nepal's trade." Far Eastern Economic Review 143.13 (March 30, 1989):
26.
(3) Salamat, Ali. "The big squeeze: India prepares to wear down Nepal
over trade treaty." Far Eastern Economic Review 144.24 (June 15,
1989): 26.
(4) Singh, Kedar. "Forest Policies: former minister in remand over
timber permits." Far Eastern Economic Review 140.26 (June 30, 1988):
27.
Reviewer: Alane O'Connor, Colby College '96
Review:
It is estimated that ten trees are cut down for every one tree
planted in the world today. Although, much of the third world,
including Nepal, is largely responsible for this rapid deforestation,
the whole world suffers. Global warming, decreased biodiversity, soil
erosion, and desertification are only some of the problems associated
with deforestation. For Nepal, it's forest degradation has led to
stagnant economic growth and extensive exploitation of a valuable
natural resource. Deforestation has deep historical roots for Nepal
that stem from inefficient and inappropriate government policies.
These policies vary from taxes on labor to land taxes to collection
patterns, but all have distorted incentives for the landowner.
Population growth has deepened the deforestation problem, but the
underlying causes of the population growth can even be linked to
adverse government policies.
The major loss of forested land has not occurred in the higher
mountains, as one might expect because of Nepal's history of floods,
but rather in the lowland areas. In fact, studies have shown that
during the period of 1965-80 the percent change in forested lands for
the high and middle mountain regions has been positive (+1.8%), while
the percent change in the Siwaliks and Terai regions (both lowland
areas) has been -15.1% and -24.4%, respectively. Still, virtually all
the forests in Nepal have been thinned during the last 10-30 years,
and much of the mountain regions were cleared earlier in history.
Government policies have historically had the largest impact on
forest degradation in Nepal. Throughout the 18th and 19th centuries,
Nepal had taxes on both land and labor. Land taxes amounted to the
payment of one half of a land's produce to the government. These
taxes were collected by ijara farmers who bid for the right to
collect the moneys. Because these rights were only short term, the
system produced "insecure tenure, minimum investment, and maximum
short-term surplus extraction" (Metz 808).
These stiff land taxes could be avoided in three different ways. If a
farmer chose to convert forest into agricultural fields, he could
enjoy a three year tax holiday. Secondly, a farmer could obtain a
jagir which was an assignment to the military. The compensation for
the jagir was the right to the taxes from a particular land. Jagirs
were necessary because of the uncertain political climate in Nepal.
The military was financed almost entirely by land and labor taxes.
These appointments were also renewed annually and provided for
insecure land tenure. Thirdly, a farmer could obtain a birta, which
was an assignment of a piece of land as a bonus for some work done
for the king.
The labor tax in Nepal during the 18th and 19th centuries required
each family to work at least 75 days per year for the state. The tax
could be avoided if the family was willing to supply a fixed quantity
of fuelwood, iron, charcoal or other materials. This policy often
increased the degradation of forests as one village, for example, had
to supply 2.4kg of charcoal each day. The process of producing the
charcoal necessitated the consumption of 3 hectares of forest each
year for that village alone. To further exacerbate the situation, ad
hoc labor taxes were levied at irregular times when the government
needed funds. The forests became a major source of the revenue.
As Nepal moved into the 20th century, the growing population and
diminishing land led to a reduction in the tax rate, which is now a
small cash payment. The stress put on the forest in the more recent
past was largely in the hands of the subsistence farmers, however
their behaviors are still strongly influenced by government policies.
For example, in 1957, the forests were nationalized, which worsened
the already existent problem of insecure tenure. Then in the 1970's,
the government required farmers to register individual private lands.
This encouraged many farmers to clear their land in an effort to make
the boundaries more clear. During the early 1980's the government
finally took notice of their inappropriate policies and allowed each
village to control their own forests, but this practice is
"inconsistently implemented by government officials" (Metz 808).
The misuse of labor combined with the excessive taxes used to finance
lavish spending on the military and a lack of investment in land kept
Nepal from developing economically. The inefficient policies gave
families underlying incentives to have more children. During the
period of labor taxes, families would have as many children as
possible so that they could send their sons abroad where they could
earn greater wages. This behavior stunted the economic growth because
the most valuable source of wealth, the strong and healthy young men,
were being removed from the labor force.
In addition to the desire of families to have many children so that
they could "export" their sons, families needed as many hands as
possible to farm the fields at home. Since the land tax required
one-half of a families' produce, having as many children as possible
increased the overall wealth of the family because they were able to
generate greater output. Because 80% of Nepal's population is
involved in this type of farming, population growth is a very serious
problem. The population growth rate per year during the 1960's was
2.1%, 2.6% during the 1970's, and over 3.0% during the 1980's.
Population control schemes have been largely ineffective as only 4%
of the Nepalese women have ever used birth control and only 2% are
using it currently. The average family gives birth to 5.4 children. A
move needs to be made so that children "absorb rather than generate
family income" (Metz 813). The underlying reason that families choose
to have children, or the way that children often become an invaluable
source of income in a subsistent household needs to be addressed.
During the 1990's Nepal's forests are still being degraded but for
somewhat different reasons. Trade problems with India resulted in
US$312.5 million worth of timber being smuggled into Asia in 1991
alone. This 15 month trade impasse with India in the early 1990's
shut off petroleum supplies to the Nepalese, which forced them to
switch to wood consumption. The result was 200 hectares of forest
were destroyed each day. Trade problems with India have been a
problem in the recent past because of the fact that India was losing
control over their monopoly of trade with Nepal. As recently as 1970,
India controlled 95% of Nepal's exports. Today, India controls only
40% of Nepal's foreign trade but most of the goods that Nepal exports
to other countries need to pass through ports and facilities on
Indian soil. This fact allows India significant leverage in the Nepal
economy.
The forestry sector in Nepal hasn't been immune to government
corruption either. In the early 1990's forestry minister Hem Bahadur
Malla was thrown in jail on charges that he issued unauthorized
timber permits and sold government timber at 1/3 of the market price.
Malla was allowed to issue permits of area up to 5000 cubic feet, but
was found guilty of issuing permits of area equal to 542,000 cubic
feet. Tourism has further aggravated the forest degradation problem
as almost 60,000 persons visit Nepal each year. Many of the nation's
forests have been cleared to build resorts for these guests.
Government agencies have also been unable to implement development
projects. Very little international aid even reaches the villages,
some say that figure is as low as 10%. The money is either stolen,
used to help those that are not in need, or spent on inappropriate
infrastructure.
One method that has been implemented in Nepal to aid the
deforestation problem is the use of fees generated from the nation's
parks to benefit the citizens. This has been especially successful
around the Chitwan National Park where many villagers are actively
involved in conserving the forests by leading tours for international
visitors. The practice both conserves the forests as well as
generates income for the villagers.