Opinion of the Economic and Social Committee on the "Eastward enlargement of the European Union and the forestry sector"
Date: 2002-04-24
Institutions: European Economic and Social Committee
Subjects: EU aid, accession to the European Union, silviculture, statistics, third country, wood industry

21.6.2002

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Official Journal of the European Communities

C 149/51

Opinion of the Economic and Social Committee on the ‘Eastward enlargement of the European
Union and the forestry sector’

(2002/C 149/13)

On 1 March 2001 the Economic and Social Committee, acting under Rule 23(3) of its Rules of Procedure,
decided to draw up an opinion on ‘Eastward enlargement of the European Union and the forestry sector’.

The Section for Agriculture, Rural Development and the Environment, which was responsible for
preparing the Committee’s work on the subject, adopted its opinion on 4 April 2002. The rapporteur
was Mr Kallio.

At its plenary session on 24 and 25 April 2002 (meeting of 24 April), the Economic and Social
Committee adopted the following opinion by 98 votes to three with eight abstentions.

1. Purpose of the opinion

This opinion looks at the role played by forestry and
1.1.
the forest-based industries, i.e. the forestry sector, in the EU
applicant countries (1) and the changes that enlargement will
entail for the EU’s forestry sector. The analysis focuses on the
role of forestry and the forestry sector as a source of economic
prosperity and provider of employment. The environmental
importance of forests is also taken into account, as a basic
assumption in the European Union is that forestry should be
economically, ecologically and socially sustainable. Another
assumption is that the EU applies the subsidiarity principle in
all forest-related matters.

The opinion focuses on the ten applicant countries;
1.2.
Turkey, Cyprus and Malta are mentioned where comments are
relevant to them. The applicant countries made an active
contribution to the contents of the opinion during its drafting.

2.

Forestry and the forest-based industries in the appli-
cant countries

2.1.2.
There are many differences between the applicant
countries in terms of their forests, although similar groups of
countries can be identified. In the countries with the relatively
greatest forest density (2), forests account for about half of the
surface area, in Hungary, the least forested, for roughly only
one fifth and in the other countries for approximately 30 %.
In terms of quantity, Poland, with just under 9 million hectares,
has the most forestland. Slovenia, with just over one million
hectares, has the least. Forests account for about 32 % of the
applicant countries’ combined total surface area, compared
with about 36 % in the current European Union.

2.1.3.
Over the last fifty years there has been a significant
increase in forestland in many applicant countries (particularly
in the Baltic States and Poland) as a result of both the
afforestation of farmland and the reversion of farmland to
forest. This means that a fairly large proportion of forests in
these countries are young. Forestland will continue to expand
considerably in some of the applicant countries (particularly
Poland, Hungary and Romania), assuming their reforestation
programmes come to fruition (see point 5.3). The rather
large proportion of young and middle-aged forests and their
attendant management needs represent a key challenge, but
also an opportunity, for forestry in the applicant countries.

2.1.

Forest resources and timber production

2.1.1.
The applicant countries have a total of 34 million
hectares of forest. Thus enlargement will increase the amount
of forest and other wooded land in the EU from 136 million
hectares to 170 million hectares. The total area of commer-
cially exploitable forest will
increase by about 30 million
hectares (31 %) from 95 million hectares at present. Malta and
Cyprus have little forest. Turkey has large tracts of forest and
other wooded land, just under 21 million hectares, although
less than half of this is real forestland.

Forests in the applicant countries are relatively dense
2.1.4.
and timber reserves are continuing to increase since the growth
rate clearly outstrips felling rates. The rate of forest use for
timber production is slightly lower overall in the applicant
countries than in the present EU, where fellings are about 60-
there are marked
increment. However,
70 % of annual
differences in this regard, both between the current Member
States and the applicant countries. Forests are nevertheless
maintaining the growth in carbon sinks in both groups of
countries.

(1) Latvia, Lithuania, Estonia, Poland, Hungary, the Czech Republic,
Slovakia, Slovenia, Bulgaria, Romania, Cyprus, Malta and Turkey.

(2) Slovenia, Slovakia, Estonia and Latvia.

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2.1.5.
Poland and Romania have the largest growing stock.
If all ten candidate countries join the EU, the Union’s growing
stock will increase to about 20 billion m3, or by approximately
47 %. The percentage increase in growing stock will be greater
than the percentage increase in surface area of forest. This
means that enlargement will increase average growing stock
per hectare in the EU (1), although here too there are obviously
cross-country differences, as there are among current Member
States.

In Poland, the Czech Republic and the Baltic States
2.1.6.
the growing stock is predominantly coniferous. In the other
countries deciduous trees make up over half the stock; Hungary
has the most deciduous forest.

2.1.7.
Forests are a crucial renewable natural resource.
Their main commercial product is roundwood, the harvesting
and processing of which provide employment opportunities.
The largest timber producer among the applicant countries is
Poland, followed by the Czech Republic, Romania and Turkey.
Slovenia has the lowest annual felling rate, as well as the
smallest forested area. Roundwood prices are still lower in the
applicant countries than in the present Member States. In some
applicant countries, forestry has been developed with regard
to other products in addition to wood.

2.1.8.
Roundwood felling rates vary considerably not only
from one applicant country to another but also from year to
year.
In some Central European applicant countries it is
possible that in some years even the majority of fellings have
been a consequence of forest damage. The age structure of
the growing stock and net increment would allow timber
production, particularly of pulpwood obtained from thinnings,
to be increased.

2.1.9.
Roundwood is a net export product in many appli-
cant countries, which is not the case in the current EU Member
States. In all applicant countries exports have accounted for at
least a fifth or a sixth of fellings and some countries have
exported almost half of their roundwood production. The
biggest exporters of roundwood are Estonia, Latvia and the
Czech Republic, which each exported about 3 million m3 of
roundwood in 1997. Roundwood exports from the applicant
countries (totalling roughly 12-13 million m3 in 1997) have
amounted to approximately four times the level of roundwood
imports. As a large proportion of the applicant countries’
exports currently go to the EU, enlargement would make the
Union more, but not completely, self-sufficient in roundwood
in the short term.

(1) Growing stock per hectare is largest in the central European
applicant states, notably in the Czech Republic, Slovakia and
Slovenia, with over 260 m3/hectare. Estonia and Bulgaria have
the lowest average growing stock per hectare, with just over
140 m3/hectare. The amount of growing stock thus varies
considerably between the applicant countries.

2.2. The forest industries

2.2.1.
In the applicant countries the forest industries consist
predominantly of the wood products industry. Per capita
consumption of wood products in the applicant countries is
nevertheless low. Sawnwood consumption in the applicant
countries stands at 0,1 m3 per capita per year on average, in
other words less than half the current level of EU consumption.
Sawnwood production in the applicant countries grew con-
siderably in the 1990s, particularly in the Baltic States and
Central European countries. Sawnwood production in the
applicant countries amounted to more than 17 million m3 in
1997 and approximately half of all production in that year
was exported (mainly coniferous sawnwood). Indeed, in several
applicant countries the sawmilling industry constitutes a
significant export industry (2). Similarly, per capita production
and consumption of wood-based panels in the applicant
countries is still low, totalling 7 million m3 in 1997. However,
production and exports of wood-based panels increased con-
siderably in the 1990s. Production is highest in Poland and
Turkey. The Czech Republic, Latvia and Slovakia are important
producers of plywood.

2.2.2. Woodpulp and paper production in the applicant
countries are rather small and these countries are net importers
of paper. Average paper consumption in the applicant
countries is approximately 60 kg/pc/pa, which is only one
third of that of the current EU.

Companies producing wood products and furniture
2.2.3.
in particular are small, and these sectors thus have a rather
fragmented structure. There are approximately 16 000 com-
panies producing wood products and furniture in the applicant
countries and just under 200 pulp and paper mills. Altogether,
there are more than 30 000 companies in the forest industries,
printing and publishing and the furniture industry.

The main problems facing the forest industries in the
2.2.4.
applicant countries relate to the fragmented industry structure
and the need to improve the level of technology and know-
how. Environmental protection and production technology
need to be improved. Fairly small production units weaken the
sector’s structural competitiveness. On the other hand, the
sector’s lower general level of costs in comparison with the
present EU is, for now, a competitive advantage. Timber
reserves and the prospect of a rise in domestic demand also
offer growth potential for the forest industries in the applicant
countries. The applicant countries intend to boost added value
and create jobs in the home economy by reducing roundwood
exports in favour of, for example, the production and export
of sawnwood. This requires that foreign investment capital is
also forthcoming in adequate amounts.

(2) Particularly in the Baltic States, Poland, the Czech Republic and

Romania.

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3. The environment

4. Economic and social significance

3.1.
The guiding principles of forestry use in the European
Union are sustainability and multi-functionality. Forests play
an important role in terms of environmental protection and
conservation. The proportion of the forest area in applicant
countries that is designated as protection and conservation
forest of different kinds varies, ranging between 2 and 21 %.
Strictly protected forests make up less than 1 % of the total
forest area in most applicant countries, as in most of the
current Member States. However, owing to insufficient back-
ground information and varying definitions, no precise figures
on the proportion of protection and conservation forests can
be given in this opinion. A condition for EU membership is
the applicant countries set up Natura networks of
that
protected sites as required under EU law.

The applicant countries are at different stages in the identifi-
cation and designation of sites for inclusion in the networks. It
was not possible, at the time this opinion was drawn up, to
assess the potential impact of this process on forest protection
in the applicant countries.

Among the most serious environmental problems
3.2.
facing applicant countries’ forests are air pollution and soil
acidification. Many forests — particularly in the Central
European applicant countries — are suffering from defoliation
caused by pollution. These forests are also susceptible to other
kinds of damage. In some countries the shift away from
indigenous tree species is also considered to have undermined
the ability of forests to resist damage. Forest fires are also a
problem, particularly for the southern applicant countries.

3.3.
Tending to forests suffering from pollution and, for
example, increasing the proportion of original tree species are
important forest management objectives in many applicant
countries. When forests are better able to resist damage, this
enables managed fellings of higher quality timber to be
increased and thus serves commercial forestry objectives in
terms of expanding timber production.

3.4.
Forests in some parts of the applicant countries are
considered to have a rich variety of species. Almost all forests
have at times been subject to human interference.

Taking environmental and multi-functional consider-
3.5.
ations into account in forestry is not problem-free in the
applicant countries. A major difficulty is the lack of resources,
but know-how also needs to be improved in certain respects.
Attitudes are also an obstacle in some cases. The applicant
countries must nevertheless be aware that an effective environ-
mental policy helps to preserve forests.

4.1.

Forests in the economy and society

4.1.1.
In the Baltic States and Slovakia forestry accounts
for just over one per cent of gross national product, while
in the other applicant countries it contributes less than one
per cent. The forest industries make a larger contribution,
although precise figures are not available. Together, forestry
and the forest-based industries are an important part of the
economy in many of the applicant countries, especially in
rural areas. They are source of employment, earned income
and export earnings, in addition to which forests are used
for recreational purposes. Private forestry is re-emerging as
an important sector and is discussed in point 4.2.

4.1.2.
Although exact figures on employment in forestry
are not available, forestry is a major employer, particularly
in rural areas. Forestry and forest-based industries together
employ an estimated one million people in the applicant
countries. The sector
is currently estimated to employ
4 million people in the EU. In the applicant countries, the
forest-based industries are the biggest employer in the Baltic
States in comparative terms, though in absolute terms they
provide most jobs in Poland.

areas

forest

4.1.3.
The scenic value and recreational use of forests are
important in terms of social sustainability. All the applicant
countries have
specifically earmarked for
recreational use and scenic purposes, and the recreational
use of forests is considered to be important. As the applicant
countries are situated close to populous countries in the
present EU, enlargement could increase the opportunities for
the recreational use of forests in the EU. At the same time
this would offer the applicant countries opportunities for
developing services and tourist
industries related to the
recreational use of forests.

forests,

4.1.4.
‘Everyman’s right’ — at least the general right of
the public to roam the forest — applies throughout the
applicant countries and represents an important way of
exploiting forests from the social point of view. With
increased private ownership of
the rights and
obligations which ‘everyman’s right’ entails for forest owners
and society has become the focus of debate in the applicant
countries. There is a need for a clear definition of rights,
obligations and responsibilities in this regard. It is essential
that the recreational use of forests does not prejudice the
rights of owners or their opportunities to commercially
exploit their forests. At the same time, care must be taken
to ensure there is no conflict between ‘everyman’s right’ and
the ecological sustainability of forests.

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4.2. The changing pattern of forest ownership

4.2.1.
Land privatisation, or land reform, was the biggest
change affecting the structure of forestry in the applicant
countries in the 1990s and continues to be so in the current
decade. Land reform has led to the revival of private forestry,
which disappeared in most of the applicant countries after the
second world war. Slovenia and Poland were exceptions as
private forest holdings were only partially collectivised in these
countries. Obviously, public forest ownership is decreasing as
a consequence of land reform. At the same time the tasks and
responsibilities of public forest administration are increasing.
The changes pose many challenges, despite the fact that
forestry know-how and forest science research in the applicant
countries are of a high level and have long traditions. Land
reform takes place through restitution, which involves the
return of land ownership to those who owned the land before
the second world war. In addition, a new group of private
forest owners is emerging as a result of the fact that other
individuals and bodies can buy land that is being privatised if
the former owners do not want it or they cannot be traced
(this process is referred to as privatisation).

4.2.2.
After the completion of land reform, the state will
still own large tracts of forest land in many applicant countries.
The evolving private forestry sector is helping to diversify the
structure of forest ownership. Other public sector bodies
besides the state, such as local authorities, own forests in some
applicant countries. Similarly, organisations and bodies like
the church may also own forest land. The structure of forest
ownership varies considerably between applicant countries.

4.2.3.
Land reform is an ongoing process in many applicant
countries, so that the pattern of forest ownership will change
further in the years ahead. By the end of 2000, depending on
the country, some 5-70 % of forests in the applicant countries
had been privatised; Romania had the lowest percentage (5 %)
and Slovenia the highest (70 %). By the time the privatisation
process is completed, approximately 30-40 % of all forests
will have been privatised, leaving some 60-70 % in public
ownership. Obviously, there are and will continue to be
sizeable differences in ownership structure between the appli-
cant countries. As a result of enlargement the ownership
structure of EU forests will shift slightly towards public
ownership, since about 65 % of forest in the present 15 EU
Member States is privately owned and only about 35 % in
public ownership.

4.2.4.
It is estimated that a total of 3-4 million new private
forest holdings will be established in the applicant countries.
The new forest holdings are generally small, with an average
size of 2-3 hectares. In some applicant countries the average
size of holdings is even below one hectare. Ensuring the
profitability and sustainability of forestry in private forests
made up of small holdings is a major challenge for the
applicant countries. Enlargement will increase the number of

private forest holdings in the EU by over 40 %, from seven
million to 10-11 million. At the same time the number of
private forest owners will increase from 12 million in the
current EU to approximately 16 million, so that some 3-
4 % of the population will be private forest owners after
enlargement.

4.2.5.
Privatisation of forests also poses a considerable
challenge for forest administration in the applicant countries:
for example, legislation governing private forestry and the
institutions and structures responsible for implementing and
overseeing it must be re-established. This development work
is currently in progress. The privatisation process will take
many years, which causes problems of its own. For example,
illegal fellings or tree thefts may have occurred in forest areas
where ownership has been unclear. It is therefore important
that government and local authorities, private owners and/or
organisations, and environmental and nature conservation
organisations cooperate in order to achieve effective and
responsible forestry management.

4.2.6.
Because of these historical events, most new private
forest owners lack experience and know-how in the practical
aspects of forestry and the timber trade. Similarly, not all the
applicant countries have institutions capable of providing
training or conducting research in this area or these institutions
need to be strengthened. Providing advice to several million
new private forest owners on, and increasing their know-how
in, economic, ecological and social issues relating to forestry
and motivating them to engage in the sustainable management
and use of forests is an important objective. It is essential for
fostering the economic and ecological sustainability of forestry.
Consequently, advisory and training services are currently be
developed.

4.2.7.
As most new private forest holdings are small,
stepping up cooperation between forest owners and the
setting-up of forest owners’ associations are seen as key ways
of promoting the development of private forestry in the
applicant countries. Voluntary associations offer an effective
means of disseminating information to new private forest
owners, promoting the profitability of forestry and self-reliance
among forest owners and motivating forest owners to practise
sustainable forestry. But the problem is not just lack of know-
how but also scarcity of resources. Moreover, in the light of
past experience, private forest owners are sceptical about joint
projects. However,
the training of private forest owners
and organisation of cooperation will become increasingly
important the further the privatisation process advances. Here
the applicant countries need not only financial resources, but
also international know-how to provide them with models
and experience on effective ways of organising advice for
forest owners and cooperation between them. This is another
reason why cooperation as mentioned in point 4.2.5 is very
important.

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4.2.8.
Timber markets in the applicant countries are also
undergoing change as a consequence of privatisation. The new
private forest owners have little experience of the timber trade.
In addition, access to market information is limited. Like
private forestry infrastructure in general, the laws governing
the timber trade,
these laws and the
the monitoring of
provision of market information and advice for forest owners
on the timber trade are being developed in the applicant
countries.

State forests will continue to be important in the
4.2.9.
applicant countries from the economic, ecological and social
point of view. However, land reform also involves changes in
public ownership. In some applicant countries, about half of
the forests will pass out of government hands. At the same
time forest administration agencies have had to face new
tasks and demands. Embracing new ways of working and
responsibilities has not always been free of problems. All told,
the changes brought about by land reform and social change
in general mean there is a need for training and development
in forest administration as well.

being developed (see also point 5.5). However, the low level of
investment in forestry does not mean that, in principle, forestry
or the forest industries are not considered important in society.

5.5.
There are various support programmes which the EU
can use to promote forestry in the applicant countries before
they become full members. The Sapard programme provides
support for measures that comply with the Regulation on
Rural Development under Agenda 2000. Like the present
Member States, the applicant countries are required to cofinan-
ce projects under the Sapard programme. In several applicant
countries support programmes have been designed to enable
private forest owners to access Community financial aid. These
countries may also take part in the EU’s R&D projects and
other initiatives such as the COST programme. Similarly, the
EU’s Phare and Life programmes have been used to develop
forestry in the applicant countries.

5.

Forestry legislation, programmes and EU support
measures for developing forestry

5.1.
The applicant countries will be expected to respect the
same international commitments and processes relating to
forests and the environment as the European Union. National
programmes targeting forestry are necessary in connection
with EU financial aid for forestry.

5.6.
A total of 5 %, or EUR 168 million, of the EU aid the
applicant countries will receive under the Sapard programme
in 2000-2006 is earmarked for forestry measures. This amount
is a few percent of the EAGGF financial aid allocated to forestry
in the present 15 Member States between 1994 and 1999. In
the 1994-1999 programming period the present Member
States allocated around 1 % of total EAGGF financial aid to
forestry. However, most of this amount was development
assistance other than that provided under programmes like
Sapard.

5.2.
During the 1990s the applicant countries reformed
their forestry legislation. Forestry and environmental pro-
grammes were developed and the development work is
continuing. However, implementation of practical measures
and effective supervision lag behind enactment of legislation.

Extensive afforestation, i.e. increases to the forest area,
5.3.
is an objective of the forestry development programmes of
Poland and Hungary in particular, but one which is also being
pursued by Slovakia and Romania, for example. In some of
the applicant countries, afforestation of farmland or other land
falls under the forestry measures eligible for aid (see also
point 5.7).

During the 1990s, overall investment in forestry in the
5.4.
applicant countries was limited because of
their difficult
economic circumstances. Many other sectors of the economy
have been given greater priority in the allocation of scarce
resources. For example, public support for developing private
forestry has been minimal or support schemes are only now

The proportion of Sapard aid that

the applicant
5.7.
countries intend to allocate to forestry varies widely from
country to country. Some countries have not earmarked
any Sapard aid for this sector. The southernmost applicant
countries are the greatest beneficiaries of forestry-related aid
under the Sapard programme, on the basis of these countries’
programme proposals. Most of the applicant countries plan to
support various forms of afforestation, but aid will also be
allocated to training for forest owners, the setting-up of
forest roads,
forest owners’ associations, construction of
establishment of nurseries, etc. As well as forestry measures
per se, funding for forestry-related initiatives may well be
available under other headings. If this is taken into account,
the proportion of aid allocated to forestry under the Sapard
In practice, receipt of aid in
programme is over 5 %.
the applicant countries requires appropriate administrative
systems to be set up, and problems in this area have so far
hampered use of aid. It will not be possible to assess aid use
until the programming period is over. Moreover, the rules
relating to EU aid for forestry and the resources available for it
could change in the future.

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6. Summary, conclusions and recommendations

6.1.

Summary and conclusions: the impact of enlargement

6.1.1.

S u b s t a n t i a l i n c r e a s e i n f o r e s t l a n d a n d
i n
f o r e s t
o f
t h e
o w n e r s

n u m b e r

p r i v a t e

Enlargement will boost the EU’s population by some 28 % and
its surface area by 33 %. Similarly, forest and other woodland
will increase by 34 million hectares (25 %) (1). The EU will
acquire an estimated 3-4 million new private forest owners in
addition to the present 12 million, so that after enlargement
approximately 3-4 % of the EU’s population will be private
forest owners. Overall, the proportion of publicly owned
forests will be higher and the proportion of privately owned
forests slightly lower than before enlargement.

6.1.2.

F o r e s t r y a n d t h e f o r e s t
a n i m p o r t a n t s o u r c e o f e m p l o y m e n t

i n d u s t r i e s —

The forest-based industries, i.e. the forest and related industries,
and forestry together constitute an important source of
employment in the applicant countries, providing an estimated
one million jobs. Total employment in the forestry and the
forest-based industries in the EU will be about 5 million after
enlargement, roughly a quarter more than at present.

paper markets. The applicant countries are an attractive
potential location for investment by forest industry companies
based in the current EU. If there is no rapid increase in internal
EU wood consumption and no new external markets are
opened up, there could even be a shift in especially sawnwood
and processed timber production from the present Member
States to the applicant countries. On the other hand, invest-
ment in the applicant countries may be held back by a number
of factors, including uncertainty about the pace of economic
growth and hence consumption of forest-based products.

6.1.4.

I n c r e a s e d
b a s e d p r o d u c t s i n t h e l o n g t e r m

c o n s u m p t i o n

o f

f o r e s t -

In the long term, consumption of wood products and paper
and board in the applicant countries is likely to increase
manyfold. A doubling of sawnwood consumption in the
applicant countries would lead to additional demand of around
10-11 million m3 of sawnwood, i.e. an increase of 13-14 %
from the EU’s and applicant countries’ current combined level
of consumption. Paper consumption in the applicant countries
could even triple from its present level. This would result in a
corresponding growth in paper consumption of over 15 % in
the enlarged Union. Although the use of electronic media
could check growth in paper consumption in the future,
growth potential nevertheless exists for some paper categories,
for example packaging paper and board.

6.1.3. H i g h e r

s e l f - s u f f i c i e n c y

i n
a n d k e e n e r

b a s e d p r o d u c t s
t i t i o n i n t h e s h o r t t e r m

6.1.5.

P r i v a t i s a t i o n — a n i m p o r t a n t
f o r c h a n g e i n f o r e s t r y

f o r c e

f o r e s t -
c o m p e -

Total roundwood fellings in the applicant countries are just
under a third of the total level of fellings in the present Member
States. Sawnwood production in the applicant countries is
approximately a quarter of current EU production. Production
and consumption of paper and board in the applicant countries
are both small. After enlargement, the EU will become self-
sufficient
in sawnwood and have a higher level of self-
sufficiency in roundwood, as the applicant countries are major
exporters of sawnwood and roundwood to the current EU.
The EU will remain a net exporter of paper even after
enlargement. In the short term competition is likely to stiffen
slightly in the markets for sawnwood and other wood
products, but no major changes are expected in the pulp and

(1) If, in addition to the ten applicant countries considered here,
Turkey, Malta and Cyprus are included, the EU’s population will
increase by 45 %, its surface area by 58 % and forest and other
woodland by 55 million hectares (41 %).

Land reform is currently an important factor affecting forestry
in the applicant countries and will continue to be so over
the next few years. The tasks and responsibilities of forest
administration are changing and forest administration faces a
wide range of challenges in the areas of development and
training. Organising training and guidance for millions of new
private forest owners and stepping up cooperation among
them are key measures that are aimed at increasing the
profitability of private forestry and securing the economic and
ecological sustainability of private forestry. The development
of properly organised timber markets is important if these
markets are to function effectively and flexibly and some of
the problems that have hampered them to date are to be
overcome. Effectively functioning timber markets are also
important for the growth of the processing industry. The
applicant countries consider it necessary to increase forestry-
related research. The prime concern, however, is the creation
and effective implementation of a credible body of
laws
supporting the changing structure of forest ownership, as this
is essential for the development of enduring and responsible
forest ownership that continues from one generation to the
next.

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6.1.6.

E n v i r o n m e n t a l c h a l l e n g e s a n d s o c i a l
r e s p o n s i b i l i t y

Forests in the applicant countries suffer from air and soil
pollution, among other things. Efforts are being made to
remedy this situation through forest management techniques.
The environmental challenges facing the forest-based indus-
tries include the introduction of processes and technologies
with lower emission levels and the organisation of waste
management and recycling. New private forest owners need
information on sustainable forest management and use, includ-
issues. At the same time the applicant
ing environmental
countries want to boost the importance of forestry and the
forest-based industries as providers of jobs and a source of
income.

6.2. Recommendations

6.2.1.

E U a c t i o n i n f o r e s t r y i s g u i d e d b y t h e
s u b s i d i a r i t y p r i n c i p l e

Even after enlargement, there is a good case for the EU to
continue to apply the subsidiarity principle in this sector since
forests differ in terms of their economic, ecological and
social significance and biological basis, both in the applicant
countries and the present Member States. EU forestry initiatives
are based on the EU Treaty, other relevant legislation and the
EU’s forestry strategy. The EU has also entered into several
international agreements on forestry. It is important that the
applicant countries also comply with these principles and
agreements.

6.2.2.

S u s t a i n a b i l i t y
m u l t i - f u n c -
t i o n a l i t y — t h e g u i d i n g p r i n c i p l e s f o r
e x p l o i t a t i o n o f f o r e s t s

a n d

Since forestry and the forest-based industries are a major
source of employment and economic prosperity both in the
EU and the applicant countries, commercial exploitation of
forests will continue to be important after enlargement.
The ecological and social role of forests is also important.
Consequently, economic, ecological and social sustainability
and the multi-functionality of forests must remain key guiding
principles for forestry in the EU after enlargement.

6.2.3. A l e g a l

f r a m e w o r k f o r p r i v a t e

f o r -

e s t r y

The applicant countries’ timber resources are growing and
fellings in relation to growth are lower than in the present EU
area. Enlargement offers opportunities as regards utilisation of
forests for economic, environmental and social purposes.

Private ownership has been found to have a generally beneficial
effect on the sustainability of
forestry. Therefore the re-
emergence of private forest ownership in the applicant
countries is a positive development. Private forest ownership
offers a new source of income for many private individuals, a
possibility to obtain firewood and wood for domestic needs
and job opportunities for others, particularly in the rural areas
of applicant countries.

If the opportunities are to be exploited, the legal and insti-
tutional frameworks necessary for the growth of the newly
emerging private forestry sector will have to be developed by
the applicant countries quickly and objectively. This calls for
clarification of ownership status and completion of
the
privatisation process without delay.

6.2.4.

P r i v a t e
f o r e s t
t r a i n i n g a n d c o o p e r a t i o n

o w n e r s — n e e d

f o r

Steps should be taken to promote training, provision of advice
and voluntary cooperation since they are crucial for developing
private forestry in the applicant countries. Financial support
for this is available under the EU’s Sapard programme and
should be used to these ends. Similarly, the know-how that
exists in the present Member States regarding private forestry
in general should be made available to the applicant countries.
The Committee proposes that the EU take an active role in
establishing a forum for the exchange of information that
would further this goal.

6.2.5. T i m b e r m a r k e t s

a n d f o r e s t

c e r t i f i -

c a t i o n

With privatisation, the applicant countries will be able to
secure effective operation and competitiveness of the timber
markets by increasing access to market
In
addition, monitoring of laws needs to be intensified. Effectively
functioning timber markets in the applicant countries are
crucial for ensuring competitive conditions in timber markets
throughout the EU. As regards voluntary forest certification, it
is essential that any certification processes in the applicant
countries be transparent and independent.

information.

6.2.6.

F o r e s t
e n e r g y r e s o u r c e s
f o r e s t s f o r r e c r e a t i o n a l p u r p o s e s

a n d u s e o f

In addition to roundwood used by industry, services related to
the recreational use of forests, the use of wood-based energy,
hunting and forest products other than roundwood offer
potential opportunities as regards rural development in the
applicant countries. One of the EU’s goals is to substantially
increase production of wood-based bioenergy. The applicant
countries’ young forests, ambitious reforestation goals and
forest-management needs provide a source of wood biomass,
since, for example, tending of young trees and forest care
generate small and waste wood which are of no use to industry.
At the same time, in developing the use of wood, the aim
should be to create as much value added as possible. The
potential for developing forest-based activities and their likely
effects should be examined in depth.

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Official Journal of the European Communities

21.6.2002

6.2.7.

F o r e s t s a n d c l i m a t e

6.2.10.

F o s t e r i n g t h e u s e o f w o o d

The role of forests in the atmospheric carbon cycle also opens
up new prospects for exploitation of forests. The importance
of forests in this regard should be examined both in the
applicant countries and the present Member States, in general
terms as well as in the context of the Kyoto Protocol of the
climate change convention. The use of wood as an energy
source should also be taken into account in this connection.
Studies should be made of the importance of forests as public
goods, the associated values and valuations and compensation
issues.

6.2.8.

S u s t a i n a b i l i t y ,
s o c i a l r e s p o n s i b i l i t y

c o m p e t i t i v e n e s s

a n d

Sustainability and respect for the environment in forestry and
the forest industries are a fundamental principle. A careful and
verifiable environmental policy should therefore be pursued
so that forests are not damaged. This policy must leave scope
for forestry and the forest-based industries to be competitive,
while conducting their activities in a responsible way. Econ-
omic sustainability is essential from the viewpoint of social
sustainability. It covers such things as job opportunities and
the possibility to preserve and promote activities that help to
maintain the countryside, such as forestry and the forest
industries. The recreational use of forests and associated service
industries are, of course, also important in this regard. The
development of forestry and the entire forestry sector in the
applicant countries should be accompanied by an open and
effective process of debate and interaction involving different
sectors of society on a wide-ranging basis.

6.2.9.
As mentioned above, careful management of forests,
as well as other nature areas, is the responsibility of govern-
ment, private owners and/or organisations, and environmental
and nature conservation organisations that own forests and
other nature areas. Responsibility must be shared. The Com-
mittee calls for a European platform for forestry and landscape
management to be set up where experience can be pooled to
develop a responsible policy for managing forests and other
nature areas.

Brussels, 24 April 2002.

Both the present EU Member States and the applicant countries
seek to boost production in the wood products industry, as
well as related jobs and income. Wood is a renewable,
recyclable natural material, the use of which does not increase
the atmosphere’s carbon load. Therefore, the use of wood as a
building material should be promoted, both in the present
Member States and the applicant countries. Rising demand for
wood products in the applicant countries would boost growth
in the wood products industry in these countries and lead to
higher income and more jobs.

6.2.11.

F o r e s t r y - r e l a t e d
t i t i o n

a i d

a n d

c o m p e -

The EU’s support measures for the development of forestry in
the applicant countries are warranted in many respects, for
example from the point of view of rural development and
the environment. Application of the subsidiarity principle
nevertheless means that aid granted by the EU must under no
circumstances lead to distortion of competition on timber or
forest products markets. The use and impact of EU aid
allocated to forestry in the 1990s should be made the subject
of an EU-wide study. This would shed light on the kind of
projects for which aid has been used and the results obtained.
Such knowledge would be of benefit for the development and
evaluation of support schemes in the future.

6.2.12. T r a i n i n g , r e s e a r c h a n d p r o d u c t i o n o f

i n f o r m a t i o n

EU enlargement highlights the importance of a coherent body
of information on forestry and the forest industries in the
Union. There is need for further development here, particularly
as regards the applicant countries. The EU should devote
further efforts to development projects promoting the pro-
duction of consistent, comparable and up-to-date statistics on
the forestry sector in the EU as a whole and in the applicant
countries. In addition, the EU should actively promote develop-
ment projects aimed at improving the compilation of statistics
on timber markets in the applicant countries. Development of
research and training related to the forestry sector in the
applicant countries is essential. For example, resources should
be allocated to developing research on private forestry, which
received little attention in past decades.

The President

of the Economic and Social Committee

Göke FRERICHS

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Official Journal of the European Communities

C 149/59

APPENDIX

to the opinion of the Economic and Social Committee

The following amendment, which received at least one quarter of the votes cast, was defeated in the course of the
Committee’s debates:

Point 6.2.2

Add a new paragraph after 6.2.2 as follows:
‘From the point of view of the environment, conifer plantations
contribute to faster soil acidification, the customary plantation and management methods do not allow the use of
forests for recreational purposes, and no wild animal can live under this kind of tree cover. Dense coniferous forests,
in which the lower branches are left on the forest floor, are subject to heavy clearing at maturity with machines that
cause serious damage to the soil and forest paths. The bare soil that remains is exposed to gullying due to run-off,
making the soil unusable for any other purpose. The medium and long-term effects of these kinds of exploitation on
the environment and soil conditions should be the subject of scientific studies. Aid should be only be granted for
traditional broad-leaved species and slow-maturing timber and firewood species, which are conducive to a balanced
ecology, plus, in the south, fire-resistant species. Aid should carry with it obligations concerning management and
clearing, the upkeep of points of access and paths, particularly for recreational purpose, and a balance between the
area under conifers and the area under broad-leaved species in order to preserve biodiversity. Certain biotypes require
special protection.’

Reasons

The opinion focuses on production, with special emphasis on conifers and fast-growing species like poplar. There
should be a shift in emphasis in favour of less intensive, multifunctional and truly sustainable exploitation.

Result of voting

For: 37, against: 39, abstentions: 8.