HELPING FOREST DWELLERS OF ORISSA
TO
_, ADOPT VIABLE ALTERNATIVES
TO
SHIFTING CULTIVATION
ISO/SWEDFOREST CENDERET
DESIGNED AND PRODUCED BY
CENTREPOINT COMMUNICATIONS, BHUBANESWAR.
HELPING FOREST DWELLERS OF ORISSA
TO ADOPT VIABLE ALTERNATIVES
TO SHIFTING CULTIVATION
NOTES & GUIDELINES
FOR OFFICIAL AND NON-OFFICIAL AGENCIES
25 DECEMBER 1990
CENTRE FOR DEVELOPMENT RESEARCH & TRAINING (CENDERET)
XAVIER INSTITUTE OF MANAGEMENT, BHUBANESWAR-751 013
AND
SIDA, COORDINATOR’'S OFFICE
PLOT 319, KHARAVELA NAGAR, BHUBANESWAR-751 00%
INDIA
TABLE OF CONTENTS
A Word of Introduction by SIDA & CENDERET
Foreword by Shri PK Mohanty, !AS, Secretary, Forestry,
Animal Husbandry & Fisheries, Government of Orissa
Chapter One:
Report of the Workshop held on 15-16 October 1990
1. The Prelude
2. The Workshop
3. The Aftermath
Chapter Two:
Documents Emerging from the Workshop
1. Inaugural Speech by Shri PK Mohanty, IAS
2. Main Findings of the CENDERET Report & Working Paper
3. A Note on Micro-level Planning & Watershed Management
by Shri Ashoka Dalavai
4, Reports of the Four Groups
Group No. 1
Group No. 2
Group No. 3
Group No. 4
5. Conclusions & Resolutions of the Workshop
Annexure : List of Participants at the Workshop
Appendices
1. Official Documents
1. National Forest Policy, 1988
2. D.O. from the Secretary, Environment & Forests, Government
of India, No : 6-21/89-FP dated 1st June 1990
3. Extracts from the Approach to the Eight Five Year Plan
1990-95
4. Govt. of Orissa, Forest, Fisheries & A.H. Dept. Resolutions
of 1-8-88 & 11-12-90
13
16
22
25
27
29
37
il. *“‘How to do it’’ Documents
5. Drought Proofing through Chakriya Vikas Pranali
6.
Sloping Agricultural Land Technology, SALT 1, 2, 3
7. VANSDA
If. HRD for Aiternatives to Shifting Cultivation,
Extracts from the Working Paper
8.
10.
Keeping People at the Centre of the Stage,
Panchashila of People’s Development
Coordination between Agencies,
Possible Pattern
Action Programme During the First Year of Operation.
A WORD OF INTRODUCTION
The present document is the outcome of a process of research and
dialogue. It started with a field study by CENDERET amongst a sample of
400 forest dwellers of Orissa, who today survive by engaging in shifting
cultivation. The findings were discussed with NGOs and officials, who are
concerned with-this problem and intensive interaction took place between
the two, at a workshop organised at Xavier Institute of Management,
Bhubaneswar, on 15-16th October, 1990.
It is not areport of the usual type, but rather a set of notes and
guidelines, emerging from this interaction. They are meant for officials and
non-officials, when they interface with each other, or together they interact
with the forest dwellers. The latter are increasingly becoming aware of the
unviability of shifting cultivation and are willing to adopt alternatives,
provided there is somebody to hold their hand during the transition.
Shifting Cultivation, or Podu as itis locally called, isan ancient
problem, and efforts to contain It date from even before Independence.
Success obtained by the Forest Department, the Soil Conservation Depart-
ment, the Tribal Welfare Department, the Integral Tribal Development
Agencies, and anthropologists associated with these agencies has been
uneven. Till now a formula, fully acceptable to the people, has not yet been
found. The search continues.
On the other hand, the need to assist the forest dwellers, is immense.
Only a small percentage of them are at present covered by official
programmes to find alternatives.
Official agencies, amongst which the Forest Department occupies
pride of place, therefore, increasingly welcome the cooperation of the
NGOs, and feel that the latter can especially help in HRD, the Human
Resources Development face of the problem.
Official agencies and NGOs can henceforth look as partners, to a
common challenge they are called upon to solve with the shifting cultiva-
tors. The two can work together, but this needs on both sides, a readiness
to adjust, patience and keenness to help the other party succeed in its task,
This process of learning will require some time, as the organisational
cultures of the partners differ from each other considerably.
( 2 )
After a short report on what transpired at the Workshop held on
15-16th October, the volume lists the documents and conclusions and
resolutions that emerged from the interaction. It also contains an agenda for
a follow-up programme, A number of documents have been reproduced in
appendix, which may help both the partners, as_ reference documents.
What about the third partner, the tribal people of Orissa, who engage
in shifting cultivation ? They were not represented as a group in the work-
shop, but spoke indirectly through the research findings which had taken
account of their views. A handful of representatives of the tribal
communities, however, active in some NGOs in the State, were present and
did speak up.
The matter contained in these guidelines has the approval of the
highest officials of the Forest Department. The document, therefore,
expresses an understanding that has been arrived at between official and
non-official agencies.
The guidelines will prove their effectiveness to the extent they
facilitate effective action, at the field level. [tis the ardent. hope of the
sponsors that this will take place, and that we will learn more, as we move
along with growing understanding.
Anders Nystrom M.V.d. Bogaert, sj
Project Coordinator S. P. Das
SIDA supported social forestry project Latha Ravindran
Orissa, Bhubaneswar Paul Fernandes, sj
CENDERET, Bhubaneswar
25 December 1990
FOREWORD“
Shifting cultivation is an age-old practice and is a way of life of the
tribals, But, of late, this has become more pronounced as the cycle gets
shorter and shorter and its economics more negative due to biotic pressure.
Attempts in the past to wean away the shifting cultivators from the practice
have not been totally successful. Obviously, alternate strategies are in order.
The shifting cultivators should be brought to the centre of the stage
in the matter of planning and implementation of schemes for their
rehabilitation. In this gigantic task the NGOs can play an effective role as
an interface bétween the Government and the tribals.
The workshop has thrown some new light on the problems and the
possible solutions. They need be followed up by respective quarters. | hope
this will be a precursor to further research and thinking in this sphere and
will serve as a guide for future and not an end in itself.
sd/- (P.K. Mohanty)
15.12.1990
Commissioner-cum-Secretary to Govt.
Forests, Fisheries &
Animal Husbandry Department
Bhubaneswar
* This foreword is not to be taken as an official endorsement of the
recommendations of the workshop.
Chapter 1
AN ENCOUNTER BETWEEN
OFFICIAL & NON-OFFICIAL AGENCIES
REPORT OF THE WORKSHOP HELD ON
15-16TH OCTOBER, 1990
l THE PRELUDE
On ist September 1988, the SIDA (Swedish International Develop-
ment Agency), Coordinator, Bhubaneswar asked CENDERET to. study
whether there was any viable future for shifting cultivation in Orissa. On 15st
November 1988, the Director, Social Forestry Project, Orissa, gave the
green signal to go ahead with the field study.
A team of researchers were fielded and interviewed a sample of 400
households who engage in Podu Chasa, in ten different locations in Orissa,
covering Ganjam (2 cases), Kalahandi (2 cases), Keonjhar, Koraput
(2 cases), Phulbani (2 cases) and Sundergarh districts. .
On 10th December 1989 a provisional report was submitted to SIDA.
The gist of the findings was that podu is less and less viable and that the
future for the shifting. cultivators looks grim.
SIDA, being interested in pragmatic action, then asked CENDERET
to concentrate on what could be done, what viable alternatives seemed to
be available, to replace shifting cultivation. It agreed to an extension of the
research period, so that the researchers could come up with answers to this
question. |
On ist April, 1990, CENDERET submitted its final report to SIDA.
The research findings were shared with the Forest Department at
Bhubaneswar and in New Delhi. In order to share the findings more widely,
SIDA requested that a summary be prepared for circulation amongst
officials and NGOs in Orissa. CENDERET completed the assignment in the
form of a working paper, which was ready by 31st August. It evoked a
good deal of interest, and had to be re-printed.
Dates, 15-16 October, were fixed for the Workshop, for officials
connected with podu, especially the Forest Department, the Tribal Welfare
Department, the Tribal and Harijan- Research cum: Training Institute,
Anthropologists, who have studied the problem, and NGOs. The response
was keen. The organisers had planned for 40 participants, but more than
70 turned up. Their names are found in this document. The Workshop was
held at Xavier Institute of Management.
HW. THE WORKSHOP
After a word of welcome by representatives of the two sponsoring
agencies, Fr R D‘Souza sj, Director of Xavier Institute of Management, and
Mr Anders Nystrom, the then Coordinator of SIDA, the workshop was
inaugurated by Shri P.K. Mohanty, IAS, Secretary, Forestry, Animal
Husbandry and Fisheries, Government of Orissa. A summary of the points
made by him are found in Chapter Two. The Secretary was looking forward
to new and fresh suggestions on how to tackle the problem of Podu Chasa
and welcomed the cooperation of the NGOs. At present only 3% of podu
cultivators are covered by official programmes. The field is therefore wide
open for other agencies.
Session One was devoted to a presentation of the findings of the
CENDERET report and the recommendations of the Working Paper. This was
done by Fr Paul Fernandes sj, Dr Latha Ravindran, Prof SP Das and
Dr MVd Bogaert sj of CENDERET.
When measured against the concern for people and concern for
environment axes, Podu Chasa yields poor economic returns to people, and
it contributes to the degradation of the environment. The cycle of recurring
cultivation has become so short (3 to 5 years at best), as not to permit any
respite to the bio-system to restore itself. The income that forest dwellers
derive from minor forest produce does not make up for the deterioration in
returns from Podu.
Sessions Two and Three were devoted to group discussions on
objectives and modalities of NGOs as catalytic agents towards alternatives,
The participants were divided into four groups. Reports were presented at
Session Four, next morning.
Session Five and Six dealt with the problem of how to proceed in
implementing alternatives. Session Five was presided over by
Shri G. S. Padhy, Conservator of Forests. Experiences of the forest depart-
ment and the NGOs showed that where people are left out from the
( 6 )
designing and decision making process of a particular intervention, the
project, however well conceived, almost always fails. People must be at the
centre of the stage and make the decisions.
Appropriate interventions to restore the environment to sustainability
do require on the other hand technical knowledge about forests, trees, soil,
water, contouring, which are usually not available with NGOs, except the
better established ones. This information has to be obtained from official or
technical agencies, or perhaps a special agency may have to be created to
function as a resource centre for those taking up alternatives to shifting
cultivation.
A disturbing finding is that extraneous factors, usually traders, induce
the tribals to continue with shifting cultivation, because the former draw
profit from the podu crops produced by the tribals, which they sell at a _ tidy
profit. It has also been found again and again that where shifting cultivators
have been given Jevel land with land pattas at the foot of the hills as part of
earlier efforts to rehabilitate them, this land has passed into the hands of
trader-moneylenders to whom the tribals are indebted to the point of
bondage.
In Session Six, Shri Ashoka Dalavai, Project Administrator, ITDA,
Rayagada, explained how the concepts of mini-project planning and water
shed management are suited to develop a system to contain shifting
cultivation. The integral approach adopted in watershed management takes
care of four systems at the same time: (i) the natural resource system,
(ii) commercial development and interaction with the market, (iii) the
physical system, consisting of roads and other infrastructures, and the
(iv) Human Resources Development of the Shifting Cultivators. NGOs are
suited to play a prominent role in the latter function, HRD. A more
detailed note is found in Chapter Two.
The Seventh and concluding Session elaborated a blueprint for
follow-up action. Various desiderata were mentioned by both official
representatives and NGO members. It was left to the organisers of the
workshop to draft the conclusions and resolutions in a coherent manner,
and see that they get the concurrence of the official agencies, as soon as
possible.
( 7 )
The high attendance of NGOs and officials, till the end of the work-
Shop, inspite of the fact that the Assembly was in session, showed the
keenness with which the members saw their task. This was a first encounter
of officials and non-officials within an academic setting. It is to be followed
up by building up working relationships in the field. The ball has been set
rolling.
Il. THE AFTERMATH
1. It remains for the official agencies and the NGOs to decide what
concretely each is going to do, as an expression of the commitment which
emerged at the workshop to work together. This can eventually be
expressed in a written document, a memorandum of understanding (MOU)
with the podu cultivators as suggested by the Secretary, Environment and
Forests, Government of India (D.O. No. 6-21/89 F.P. dated 1 June 1990—
See appendix 2).
2. The report of the workshop, drawn up by the sponsoring
agencies, and approved by the official agencies, should be in the hands of
the participants as soon as possible,
3. To facilitate work at field level, a Shifting Cultivation Manage-
ment Cell, in short a Podu Cell, should become functional at State level as
soon as possible.
This body of persons, informal in nature, would consist of representa-
tives of the Forest, Tribal Welfare and Revenue Departments, some NGOs,
an anthropologist, members of CENDERET, of the OUAT and of a donor
agency.
4. The hope was expressed that when issuing further official
notifications about social forestry, and measures to contain shifting
cultivation, the Government of Orissa would keep an account of the views
and needs expressed in this report.
The’ text of the conclusions and resolutions of the workshop are
found in Chapter Two.
Chapter 2
DOCUMENTS EMERGING FROM THE WORKSHOP
In the present chapter, matters discussed during the workshop are
given, but they have been summarised in the form of short notes. The
chapter ends with the conclusions and resolutions of the workshop.
1. Inaugural Speech by Shri PK Mohanty, IAS, Secretary,
Forests, Animal Husbandry and_ Fisheries Departments,
Government of Orissa.
»« Podu Chasa has become a ‘burning’ issue for Orissa, literally and
figuratively speaking. It is an old practice, and efforts to contain it, date back
from practically since Independence.
« The State has a recorded surface of 57,000 sq kms of forests,
though in the field this is much less, This is the third largest cover in the
country, and accounts for 9% of the total forested area of India.
» According to satelite information, this area has depleted very
rapidly. Between 1983 and 1987 alone nearly 6,000 sq kms, more than
10% of the forest cover, has been lost. With a rate of 50,000 ha of
replantation each year only, we do not match this deterioration. The survival
rate of these plantations varies greatly. (In Keonjhar it reaches only 50%).
« The scheduled tribes practising Podu are not really responsible
for this destruction of forests, but they are made the scape goats. It is the
greed of the urban dwellers, which impels the contractors to engage in
illegal felling. The growing population also creates high biotic pressure.
* The-Forest Policy of 1988 and other documents emerging from
the Government in the recent past, show an altered approach, the revenue
approach has been replaced by a concern for human resources development
of the forest dwellers, The 1988 Policy explicitly mentions the shifting
cultivators in section 4.7 and does so in an understanding manner.
* Podu is a way of life for forest dwellers, a-method of combining
agriculture with forestry, developed over the centuries. It was viable then,
it no longer is today. A rough estimate States that 50% of forest cover in
Orissa is subjected to shifting cultivation. Figures produced by the
(9)
Agricultural Department speak of about 1.85 lakh hectares, cultivated by
1.41 lakh podu families. The !TDA and ten Micro-projects, which attempt
an integral approach to rehabilitation, have met with limited success. They
cover only 5% of podu cultivators. So, we need assistance of other
agencies.
« The Forest Department has come up with two models for
rehabilitation based on certain assumptions.
Model I
Itassumes that the podu cultivators can be weaned away from
shifting cultivation immediately if given viable alternatives, in the form of
Intensive plantation in their own habitat. Five hectares would be allotted per
family, for rotation of energy crops and fast growing species on a seven
year basis. Sisal would also be planted which provides a considerable
amount of employment. Contour terracing would be done. This would
provide 300 mandays per family per year, enough for not having to depend
on podu. Food would be provided from the World Food Programme. The
usufruct or products grown on the land would be with the podu family.
Model Il
Assumes that shifting cultivators cannot immediately give up their
podu, and may be permitted to carry on with it in a limited manner for a
period of another four years. Jn this case they are weaned away gradually.
They would be provided with seven plots of land (of 1 ha each plot) for
plantation of pollardable and quick growing species they could use for
slash and burn. This would provide 300 mandays of work per year. The
question is whether enough degraded forest land would be available to take
care of 2 lakhs of families. In this case also, there would be no difficulty in
assuring the usufructory rights to the shifting cultivators.
* The podu cultivators should be consulted very soon, because
micro plans are proposed to be implemented within the next two to three
months.
« Shri Mohanty was in favour of trying out these models, or other
ones in two or three districts, with the help of NGOs, who can deliver the
goods. If the experiment proves successful, the effort can be replicated in
other districts.
( 10 )
« Regarding Forest Committees, he remarked that six thousand
village committees had been set up to protect the Reserved Forests in the
State. The principle is being extended to the protected forests also. Some
committees exist on paper while some are active. The committees have the
duty to protect forest and the right to usufruct of firewood and small timber
for genuine .domestic needs. If NGOs can help in activising all these forest
committees, they would render a signal service. If found helpful, modifica-
tions can be introduced in the manner in which they are constituted. An
incentive scheme for Gram Panchayats for protection of forests is on the
anvil.
* Fresh suggestions and cooperation of the NGOs are welcome by
the State Government.
2. Main Findings of the CENDERET Report and Suggestions of the
Working Paper by Paul Fernandes, Latha Ravindran, S P Das
and MVd Bogaert.
*« If we use aquadrant approach to situating problems of the
shifting cultivators, by using concern for environment as the X axis and
concern for people as the Y axis, we can only aim at placing a suitable
development in the upper right hand quadrant: high concern for environ-
ment and high concern for people.
-+
“y desirable situation
concern for environment D
present
Situation.
( 11)
Unfortunately, the field study of 400 families of shifting cultivators
suggests that these forest dwellers have been reduced to the —— quadrant :
low concern for environment, which they are destroying and low concern
for people as well. All of them except a handful of families, are clearly
below the poverty line, and they suffer from a guilt feeling, imposed on
them from outside and interiorised, as if they are the destroyers of the
forests.
Any meaningful programme has to lift them out from this ——
situation to a + + situation.
*« The first and foremost difficulty in podu containment, is that it
very difficult, tf not impossible to find out how much area exactly is under
podu in terms of acres or local measurements.
« To compute the inputs and outputs from shifting cultivation has
caused headaches to field researchers ever since the problem has been
studied. CENDERET has adopted the method, scientifically justified and
endorsed. by other scholars, of computing the two main ingredients, seed
and labour, into monetary values by taking into account market prices of
seeds and value of labour at prevailing market wage rates. Since mixed
cropping is practised on routine basis, the labour input common to all crops
was apportioned between crops considering the ratio of the value of
specific crop to the total value of all crops put together. The total return
from each crop, even though they may be retained for self-consumption is
valued at the prevailing market price to estimate total monétary returns.
When this method is applied, it is found that hardly 15% of all crops
grown yield any positive returns to the shifting cultivators.
In many cases it is observed that the worth of crop yield is less than
one fourth of the worth of labour and effort tnvolved in producing it.
Shifting. cultivators would earn more if they had been able to find
daily labour. Yet they continue with shifting cultivation, because for them
it is a question of subsistence and they see no other solution, they are
cornered. Other benefits do accrue to the shifting cultivators, such as
minor forest produce, collection of fuel from crop residue, etc. Even if this
is taken into account, their situation is desperate. They are aware of it, and
( 12 )
are willing to adopt alternatives, provided there is somebody, to show how,
and to hold their hand.
« How several voluntary organisations in the podu chasa region, are
helping the shifting cultivators in their human resources development, and
empowerment has been described in the panchashila of people’s develop-
ment, mentioned in the working paper. (It is found in the appendix). It
must not be forgotten that while on the one hand, the shifting cultivators
are still said to destroy the forests, several groups have limited or stopped
the practice altogether. A sign of hope in the forest situation, within the
districts known for podu chasa, is that the forest protection movement
-has been growing into a popular movement. Unfortunately it has not been
properly documented till now, and therefore is not known within the State
or in other parts of India, while the West Bengal and Gujarat cases are
known all over the country. Whom to blame, except ourselves ?
We can learn much from the pioneering experiences of the NGOs in
Orissa, who have gone ahead in this direction, and some of which were
represented at the workshop.
* As regards patterns of intervention available to NGOs, they consist
of two possible approaches: (they are not to be confused with the two
models, developed by the Forest Department, mentioned earlier).
Pattern |: NGOs as Interface
As mentioned in D.O. letter no :6-21/89-F.P. of 1st June 1990, of
the Secretary, Ministry of Environment and Forests, Government of India,
Section 3, voluntary agencies are associated at the interface between State
Forest Departments, and possible other Departments, and the local village
communities for revival, restoration and development of degraded forests.
Under this arrangement, and in full understanding with the Forest
Department or any other official agency, which functions as Lead Agency,
the NGOs only look after the Human Resources Development aspects of the
programme. This means taking the people through the panchashila of
people’s. development, looking also after the monitoring of how people
react to the inputs of the lead agency, and functioning as trainer agency, for
( 13)
whatever inputs the shifting cultivators need to adopt viable alternatives.
What is meant by the panchashila is explained in Appendix No 7.
Pattern {1 : The NGO as Lead Agency taking care of all
aspects of rehabilitation of shifting cultivators
This approach can be adopted by larger and better established NGOs,
which besides the HRD aspects of Model I, take care of all economic, legal,
technological aspects of rehabilitation as well, and function therefore as
fullfledged Lead Agencies.
It is desirable that some NGOs assume this role on a pilot basis. It
would permit them to adopt and experiment with methods, that are
alternatives to the methods adopted by the official agencies.
The preferred approach would be the Watershed Management
system. The NGOs could also experiment with such methods as the one
developed by the Chakriya Vikas Pranali, in Palamau district of Bihar (see
appendix 4), or SALT, as developed in the Philippines (see appendix 5) and
also spread the participatory action research and development (PARD)
method of involving the shifting cultivators deeply into the planning of
alternatives.
3. A Note of Micro Level Planning .& Watershed. Management,
as explained by Shri Ashoka Dalavai.
Speaking on the basis of effective cooperation between the ITDA,
Rayagada and Agragamee, at Kashipur in Koraput district, he explained
micro-level planning as follows :
*« It aims at the integrated development of both people and area, by
restoring deteriorated environment to sustainability. It covers four aspects :
Natural Resource Development, Commercial Development, Physical
Development and Human Resources Development.
i. Naturajl Resources Development.
It aims at the development of podu land into agricultural land, by
checking run off of water, soil erosion, and restoring biomass cover. This is
done by watershed management, which looks at land management and
( 14 )
water management, in an integrated manner, and also the introduction of
agro-forestry, adopted to a particular watershed, taken as a unit.
Contour bunding assumes an important role in this approach, bunds
follow the contours and are adapted to the type of soil and slope of the
land. The contour bunds are made of rocks, or are planted with soil fixing
grasses, such as Sabai grass, or bushes and also subabul. Depending on the
slope, each contour strip, bordered by a contour bund is planted with a
mixture of forest crops, followed by horticulture, annua! crops, as one
comes down the slope. Mixed cropping is adopted, and crops are rotated
from contour to contour, year after year. In the lower slopes, fishery in
paddy fields, sericulture, and animal husbandry are combined with fodder
crop plantations. The speed of run off of water is controlled. The biomass
on degraded hill slopes is restored, with the result that fields at the foot of
the hills, also can again produce once more. To take care of excess run off,
diversion drains are laid out, to collect rain water in ponds lower down the
slopes.
iii Commercial Development
Care is taken that the farmers obtain a good price for their products
in the market, and are not exploited by traders and middlemen. Group
entrepreneurship plays a vital role here. Where possible, processing units
are installed, for instance, to can fruit, so as to add value, and avoid
flooding the market with excess products causing a crash in prices. The
commercial development is specially adopted for the crops grown ina
particular area.
iii. Physical Development
By this is meant the development of infrastructures, such as roads,
drinking water, schools, dispensaries, banks, cooperatives, also proper legal
tenure arrangements of land.
iv. Human Resources Development
It covers awareness promotion, education, training, instilling
confidence, faith and organisational development amongst the people
inhabiting the micro-plan area.
( 15 )
It is particularly in this last area, that NGOs have an important role
to play. HRD at grassroots level is carried out by village animators, under
the supervision of an escorting NGO. They run night schools, and see that
the village committees are active.
One form of micro-level planning, and watershed management, as
developed in the Philippines is called SALT, Sloping Agricultural Land
Technology. Details about SALT are found in appendix 6.
The Chakriya Vikas Pranali, is a simplified Indian variant, developed
in the drought prone areas of Palamau district in Bihar. It can be adapted to
the wetter hill areas of Orissa as well. Details are found in appendix 5.
PARD, or Participatory Appraisal for Rural Development is a method
to involve the shifting cultivators into the planning of alternatives and
tapping the knowledge they have of their environment.
4. Reports of the Four Work Groups
Four issues were presented for discussion, one for each group :
Group 1
DOING AWAY WITH PODU CHASA
Issue for Discussion
If you are willing to take up any measure to contain podu, have you
ever tried to find out from the podu cultivators about their readiness to do
away with ‘podu chasa’ ? Do you think they would readily give up such an
age old tradition which is part and parcel of their culture ?
Participants
CHAIRMAN : Mr Nityananda Patnaik
Bonani Samall, Xavier Institute of Management (XIM), Bhubaneswar.
Rajesh Mishra, XIM, Bhubaneswar.
A Jagadananda Sahu, KMDS, Parlakhamundi, Ganjam.
Ajit Bhartwar, Dy Director (M&E), Social Forestry Project, Orissa.
Choudhury G Mishra, Conservator of Forests, Working Plan Circle,
Cuttack.
Santosh K Panda, Lokshakti, Balasore.
Dilip Ch Samantaray, OSS!, Baramba, Cuttack.
Chabila K Naik, TRUP, G Udaygiri, Phulbani.
Parasbhai, PRDATA, G Udaygirl, Phulbani.
O. Kundan Kumar, Rapporteur, SIDA, Bhubaneswar.
Se aie ae ieee
So eto
Report of the Group
The group feels that shifting cultivation is by no means inevitable.
it could be stopped over the greatest part of those areas where it exists
today, provided the current alternatives and approaches, and above all a
strong will power and determination are adopted to bring this about. In fact
in almost all regions where shifting cultivation is in vogue, a few of the
more intelligent and industrious among the tribal people do cultivate a few
plots of land in valley bottoms under irrigated conditions and permanent
crop regime. The problem, therefore, now in many places like Bonai, Bamra
and Pallahara and some areas in Phulbani, Gunpur and Parlakhamundi is not
( 17 )
to persuade the tribals to give up shifting cultivation and take up settled
agriculture, or any other income generating means of livelihood, but to cope
with the rising expectations and achievement motivation for a _ better
Standard of living. If this desire is not readily fulfilled, antagonism and
frustration are inevitable.
In many areas, particularly the tribal areas in Southern Orissa, there
is a considerable cattle population. Large number of famished animals
swarming over the lower slopes which have grazed them bare. Both cattle
and buffaloes graze at higher altitudes also and even on hill tops. In this
case stopping of shifting cultivation does not solve the problem. Unless
grazing on hill slopes is restricted, the hill slopes would continue to be
degraded by the continuous onslaught of cattle.
For many tribal communities, like the Gonds and the Bhuyans, the
axe-cultivation has become nothing more than a habit. It has no root in
their legend and mythology. Its customs are no longer clear and mandatory.
For example, the straw rolled lighted torch or fire from their dwelling house
is used to light their podu clearings, instead of the sacred fire from the
Mandaghar as is in the case of the Juang neighbours. The use of plough is
not a taboo among them as is true in the case of Juangs and the Baigas.
They are aware of the fact that shifting cultivation means poor living and
that they would get nothing but advantage by abandoning it.
Older people resist change and most doggedly stick to pre-agricul-
tural level of technology. Therefore, the younger age groups who are
generally more amenable to new ideas and changes should be tapped for
transfer of technology and introduction of innovations in methods of
production.
A noticeable feature of the hill tracts, both in North and South Orissa,
is the fine groves of Jackfruit and mango trees, and orchards of banana,
pineapple and citrus plants, These plantations provide the tribals with a
valuable cash crop as well as with a nourishing food. Introduction of
improved practice in horticulture is one major way in which the economic
condition of the people can improve.
( 18 )
Another noticeable feature of certain tribal areas, particularly Ganjam
Agency is terraced rice fields. The Saoras show great ingenuity, in contour
bunding, water management and terracing. Paddy plants are transplanted
in terraced fields under irrigated conditions with application of cowdung
manure, and recently introduced fertiliser and pesticides. The Saoras should
be provided with improved agricultural inputs and kept busy full time so
that attention is slowly diverted from Bagada Chasa to wet cultivation.
In areas like Keonjhar, Bonai, Bamra and Pallahara where the tribal
people see material advantage of settled cultivation and diminished crop
yield from the swiddens there has been a spectacular change in their
outlook and a desire for settled cultivation has been created. In fact, the
Juangs of Keonjhar in many villages have given up second year toila
cultivation and have taken to paddy and wheat cultivation in valleys under
irrigated conditions. It is a fact that in many areas, the non-tribal traders
instigate the tribals to take up cultivation of turmeric and ginger in swiddens
for the benefit of the traders themselves, and not of the growers.
The problem in these areas is not so much of shifting cultivation as
that of exploitation by local traders and money lenders. What is required for
the economic development of the people is to bring about awareness
among them about constitutional safeguards and protective legislation and
strict enforcement of anti-exploitative measures.
The problem of shifting cultivation is a matter of change in attitude.
The tribal people in general have low need levels. So long as they have
sufficient food for the day, they care little for tomorrow and they appear to
lack the desire of self-improvement. This attitude should be changed if
their economic condition is to be improved in the process of weaning them
away from shifting cultivation.
The tribal areas, particularly those located in hilltracts are most
underdeveloped because of fack of infrastructural facilities. The middlemen
and merchants take advantege of this situation and exploit the tribals by
various: ways. It is necessary to develop roads in these areas and provide
fair price shops wherever they are not available and rejuvenate the LAMPS
wherever they are not functioning properly and have become defunct.
( 19 )
Without educational improvement, no other improvement is possible.
Schools should be established in villages where they are lacking, and made
functional by meeting the deficiencies in teaching staff, in building and
boarding facilities, Adult education programme and functional literacy is
equally and in many respects more important than normal schooling and in
this context educational component should form an integral part of all types
of developmental programmes.
Different tribal communities present different life styles due to
difference in their social systems and cultural patterns, in their ecological
setting and means of livelihood, degree of cultural contact and achievement
motivation. Although area development approach is commendable, it should
be followed with emphasis on the specific tribal community inhabiting the
area, It means that based on the life style of the tribal groups, programmes
of development should separately be planned for each ethnic group.
The Area Development Approach with emphasis on Tribal Develop-
ment will have the following components :
1. Human Resource Development : Individual/family oriented
benefit schemes, such as awareness building, educational improvement,
development of skill for need based occupations and vocations, achieve-
ment motivation, and development of material assets.
2. Development of the area and _ inhabitants: Development of
infrastructures (roads, schools, health centres, LAMPS, Banking system,
markets, VLW/VAW headquarters, agricultural depots, progeny orchards,
electricity, water supply, irrigation facilities, etc.).
The shifting cultivators depend heavily on forests not only for land
for cultivation, but also for earning subsidiary income through collection of
minor forest produce or as wage earners in forestry activities. It is essential
that their bias towards forestry and forest activities should be allowed to
continue so that these resources could be conserved for mutual benefit.
It is incumbent that the public distribution system, including LAMPS
and marketing network should be streamlined so that the tribals get their
daily necessities at a reasonable price and a fair price for their forest
produce,
( 20 )
As the situation stands today, it is possible to do away with shifting
cultivation. But the prosperity and happiness of the shifting cultivators that
is envisaged to come about cannot be achieved unless all sources of
exploitation are plugged. The lands possessed by the tribals in the valleys
have passed into the hands of the liquor vendors and money lenders. The
improvident habits, ignorance and illiteracy of the tribal people, often lead
them to part with most of their agricultural and forest produce in repayment
of debts at an exorbitant rate of interest. The cunning and rapacious
sycophants and money lenders as well as traders are largely responsible for
their misery and ruin. In this respect they are badly in need of vigorous
protection vis-a-vis Government, until] they have advanced sufficiently to
look after themselves—a matter of not less than two generations..
The sustainability of the success of our endeavour depends upon
two factors: (1) involvement and participation of the target group and
(2) spread of education and a broad perspective and awareness about various
programmes of tribal development. Moreover, food and medical aid are.
the prime necessities after that education. Without it, progress cannot be
made. On it depends the future success of the tribal development schemes.
The type of work which must be undertaken to accomplish the
social and economic betterment of the tribal people and to wean them
from the destructive cult of shifting cultivation is not one that can be
conducted by a secretariat or from an office It can only be dealt with by
practical workers in the field to whom responsibility together with adequate
powers and discretion have been delegated. The personal touch is
essential; red tapeism could ruin all chances of success. But the right type
of worker is not easy to procure. He must be the essence of tact and discre-
tion, at the same time be firm and persevering, and he must be selfless.
The work will take him into the remote and unfrequented parts where he
will often have to roughit out. He must, therefore, be imbued with the
zeal of a missionary. He must watch to see that the tribals are not exploited
by his subordinates, and, as far as possible, only men of proved integrity
should be employed. Where thereis a tribal language, he should make it
his business to learn it, for there is no better way to the heart of a tribal
than through the knowledge of his language, even if it be only a smattering.
( 21 )
Where do we find out this kind of persons ? They are found amidst us :
voluntary workers of the so called tribe of NGOs.
Absence of reliable anthropological, economic and statistic data on
shifting cultivation, which varies from region to region and from tribe to
tribe, is a major drawback in identifying the gravity and dimensions of the
problem and designing solutions to tackle it.
Absence of area-wise data on duration of bush-fallowing, cropping
pattern and crop yield, extent of denudation, degradation and erosion,
extent of damage caused to water regime, intensity of run off, nature of rock
and vegetational cover is a serious drawback in deliniating the areas into
different gradations on the basis of the extent of damage caused by the
practice of shifting cultivation and in devising area specific means, which
will help the soil to re-establish itself and vegetational type progress
towards the climatic complex.
Collection, analysis and tabulation of data gathered through
schedules and questionnaires will be the work of either XIM or SIDA. There
may be a special cell created to take up field work in different parts of the
State and evolve techniques to show impact of works relating to shifting
cultivation on the target group. It should be the work of the cell to devise
monitoring and evaluation techniques, forms and questionnaires for data
collection.
Group 2
CHALKING OUT A WORKING RELATIONSHIP
Issue for Discussion
The second issue is concerned with chalking out a working relation-
ship among NGOs, Forest and other related Government departments,
Government scientists, environmentalists and village communities, in the
form of a written memorandum of understanding.
Participants
CHAIRMAN: Fr Augustin Karinkutiyil, Catholic Charities, Khurda Road,
Jatni.
Anthia Madiath, Gram Vikas, Berhampur.
AV Swamy, VISWAS, Khariar Road.
J Parida, Jana Vikas
KC Sahu, Ashwin Project, Keonjhar
Dr SN Patra, OUAT, Bhubaneswar
GC Padhy, Conservator of Forests, Forest Dept.
BG Das, JAGARANA, Koraput.
S Nayak, Gumusar Mahila Samiti
ay
i
© ONDA WN
Anders Nystrom, SIDA, Bhubaneswar
10. SP Das, CENDERET, Xavier Institute of Management, Bhubaneswar
11. Neera Mendiratta, SIDA, Bhubaneswar.
Report of the Group
It was necessary to have some conceptual clarity on the problem,
alternatives and strategies to combat the problem of podu cultivation, before
proceeding to discussion on Memorandum of Understanding (MOU).
It was possible to discuss only an approach to MOU and broad
guidelines to the same, details of which have to be worked out after the
alternatives and strategy to deal with podu are clearly spelt out and the
concerned agencies and group sit together.
Shifting cultivation has now become _ both economically and
ecologically unviable. However, the shifting cultivators are forced to
( 23 )
continue with it, as part of their survival strategy in a situation of no
alternatives. They need to have choices—viable alternatives to this
degenerating system of podu cultivation. And _ in the shifting cultivator’s
search for alternatives or even in recognition of need to search for
alternatives, he needs to be assisted.
Alternatives to podu cultivation have to be found in micro
perspective. Primarily these alternatives should be forestry and agriculture
based without requiring drastic changes in the tribals’ life pattern and their
uprootment from their area. Suitable Jand policies and rights to tribals over
the land are essential.
Concerted efforts are required by Government and non-Governmental
agencies, environmentalists and scientists to ameliorate the situation. The
lead role in this case should be taken up by the NGOs with support from
Government agencies and environmentalists. The arguments in support of
NGOs playing the lead role were :
a. The Government agencies by and large have failed to achieve a
break-through till now. NGOs should be given a chance to play the role,
they can fulfill.
b. An NGO’s capabilities can determine the scope of their work and
the operational area. However, the entire responsibility of implementation of
strategies planned by them in consultation with the shifting cultivators
and the Government agencies should be with the NGO.
c. NGOs should be recognised as equal partners of Government
agencies in development efforts.
The importance of NGOs (especially focal NGOs, Youth clubs and
Mahila Samities) role as interface between Government agencies and
the local people is to be recognised.
NGOs, if in the lead role, should undertake :
a. Participation in Government policy making process and influenc-
ing it (this process can be initiated at all levels through BLCC &
DLCC, etc).
b. Planning (of the project) involving both Government agencies
and local people.
( 24 )
c. Implementation.
d. Monitoring & evaluation (Government agencies should also
undertake monitoring and evaluation of NGOs’ work).
e. Feedback to Government agencies.
Government agencies’ role in the process should be : =
a Framing suitable land policy; project formulation and guidelines
formulation.
b. Identification of NGOs.
c. Responsibility delegation to NGOs.
d. Monitoring & Evaluation
In addition, the Government agencies should provide support to
NGOs in the following form :
a. Funding.
b. Assistance in building NGOs’ infrastructure or lending its
infrastructure for use of NGOs in some cases.
c. Technical inputs.
d. Policy-level support and willingness to fine-tune rules, regula-
tions and project guidelines depending on feedback from NGOs.
e. Access to information.
A support should be available from Government officials, from
Forest Department, ITDA, Soil and Water Conservation Dept, Social
Forestry Project, Horticulture and Agriculture Dept. The idea of formulation
of a support team can be explored.
A forum at district level and State level should be provided for
discussion amongst NGOs dealing with shifting cultivation, Government
Agencies, environmentalists, anthropologists and sociologists.
Accountability of NGOs to the Funding Agency and the local people
should be clearly spelt out in the MOU.
The Government Agency, who is primarily responsible for dealing
with the problem, according to NGO representatives in the group, should
be the Tribal Welfare Department or Forest Department.
Group 3
STRATEGIES & POLICIES
issue for Discussion
How do you propose to carry out your role ? What policies are you
going to follow and what are the strategies you are going to adopt ? What
are the alternatives you find to be suitable in the areas of your operation ?
The outcome of this discussion can take the form of a proposal drawn up
for the use of agencies, Planning Commission, Wasteland Development
Board, and so on.
Participants
CHAIRMAN : Prof Radha Mohan, Sailabala Women’s College, Cuttack
Hemant Nayak, Gumusar Mahila Sangathan, Phulbani
TB Benarjeedas, REALS
Bharati Ray, CENDERET, Bhubaneswar
A. Mishra, NYSASDRI, Dhenkanal
Sudhir Behera, SIDA, Bhubaneswar
UN Behera, VARRAT, Koraput
AK Bansal, Forest Department, Bhubaneswar
MVd Bogaert sj, CENDERET, Bhubaneswar
Badal Tah, ANKURAN, Narayanpatna
. Kedarnath Ranjit, CYSD, Bhubaneswar
_R Jamuda, Director, Tribal Welfare, Government of Orissa,
Bhubaneswar.
SS Bie eae Se! Pe NS
- ©
Report of the Group -
1. To ensure people’s participation in identifying needs/problems,
finding solutions, alternatives and implementation.
2. Involvement of NGOs in planning and implementation of projects.
3. To educate people and make them aware of different forces
operating.
( 26 )
4. To strengthen community organisation and people's leadership
into action through group spirit.
5. People’s access to alternative/supplementary income sources like
forest produce, etc. to be enhanced and Government monopoly replaced
by a protective role.
6. Cooperative society by women should be. encouraged to counter
monopoly and other types of exploitation. Inculcation of women in the
political process and empowerment.
7. Interaction of different tribal groups of different areas (through
NGOs).
8. There can be two broad based alternatives : (i) land based and
(ii) non-land based.
Land Based could be through horticulture, settled agriculture, etc. Non-/and
Based could be through income generation activities like khali stitching, etc.
9. Checking exploitation and activising the policies.
10. Training/workshop could be a continuous process where people
themselves alongwith NGOs and Government officials take part.
11. Frequent Government and NGO meets for exchange of ideas—
preferably on site.
42. Community ownership of land could be thought of along with
common mode of utilisation.
13. Information dissemination at all levels, especially of forest land
amendments, new laws, issues. There is need for baseline information and
documentation.
14. Monitoring and supervision should be properly done— preferably
by the persons who have taken part in the process of interaction/dialogue
from the very beginning.
15, Financial proposal is to be drawn up by each project or
organisation basing itself on people’s needs and their capabilities.
Group 4
HOW TO BRING PEOPLE TO ACCEPT AN ALTERNATIVE
Issue for Discussion
Do you think your anti podu operation would prove to be more
successful if you make provision of your services to the people on condition
that they would leave podu ? A discussion can be carried out regarding the
pros and cons of this kind of a simulated situation.
Participants
CHAIRMAN : Mr. Ashok Dalavai, ITDA, Rayagada
Harishchandra Dash, SOLAR, Konark
Saranga Samal, NYSASDRI
Dinesh D’Silva, Samman, Berhampur
D Barik, Darbar Sahitya Sansad
Shankarsana Hota, PIPAR, Dhenkanal
Durga Dash, PALISHREE, Gasiput
GC Mallick, DNSS
UN Behera, Varrat
Arati Padhee, CENDERET, Bhubaneswar
10. Mr Choudhury
Report of the Group
ht SY ee NS:
co
The proposition whether anti-podu operation can be offered on the
pre-condition that the people would stop podu practice presupposes that
the podu cultivators have realised that podu chasa is both economically
and ecologically non-viable. The question can be answered if
we can study the level of awareness about PC and the range of
alternative development strategies known to them. Against this background
the known evidence indicates that podu cultivators in Orissa are not as yet
prepared to be offered a conditional proposition.
When we talk of conditional offer we are essentially talking of a
market economy where the participants are highly aware and competitive.
To cite an instance of the futility of such an offer the experience of Nepal,
( 28 )
Tarai region can be quoted: when the Govt. of Nepal directed its podu
cultivators to stop podu by a Government decree the people refused to
comply. But the same people cooperated when the Government offered an
alternative through horticultural plantation.
There is always a resistance to change. The strategy for success lies
in weakening this resistance and gaining the confidence of the clientele to
a participatory approach to development.
To do this, the following points have to be borne in mind :
What is the tribals’ self-assessment of his situation ?
What is his level of awareness ? Does he perceive podu as
unproductive ?
c. What is his level of response to new ideas ?
What is his opinion about the delivery system—both Governmental and
non-Governmental organisations ?
e. Does he have any religious and cultural! relation with podu practice ?
Various Government programmes have failed because the clientele
was treated as the object and not the subject. The people have not been
involved in planning and implementing the programmes. The_ tribal
in particular has been treated as an ignorant and irrational being-who does
not know what is good for him. Since the programmes have been
imposed on him, the social protection expected from him has not come
through, e.g. destruction of fruit bearing and well established orchards in
DKDA, Chatikona area. Similar destructions have also been noticed in
recent plantations by OTDP, Kashipur.
Besides making the people feel that they decided the programme,
their felt-needs should also be incorporated in the programme, e.g. ensuring
food security in anti-podu operation through agro-forestry principle rather
than substituting only perennial crops for animals.
it is possible to make a conditional offer if the clientele can be
befriended and its confidence elicited in the intentions and the ability of the
delivery system. There are several such bright examples in both Government
( 29 )
and non-Governmental sectors. The crisis of confidence between the people
and the Government is the result of sloppy performance in the past. Such
actions have produced negative results.
When arange of development strategies are offered, the following
issues may be considered :
a. Teach the tribal to analyse his present situation in the context
of economy and ecology. He should also be made to think as to what he
can do for himself.
b. As a group, the tribals live for today. The habit of saving to tide
over future crisis or for future progress is absent. The solution lies in
creating the saving habit amongst the tribals. This is capable of catalysing
the process of thinking and finding new modes of podu. Presently the urge
for saving which is fundamental to investment and income-generation is
missing, e.g. out of 10 lakhs paid as wage arrears in Kashipur block, at
least 5 lakhs went for liquor.
Cc. The tribal should be informed that the yield potential of the
natural resources on which he depends is declining due to defective
management.
d. Empower the tribals through conferring Ownership rights of
resources, endowing them with improved tools and technology. Thirdly,
education should be imparted to enable them the use such tools.
e. Demonstrate to the tribal that the alternate strategy being offered
to him is superior to his present situation and is economically and
ecologically viable.
If the people can be prepared as above, then it is possible to make a
conditional offer, that our service is subject to their giving up podu chasa.
Otherwise, it will be like putting the cart before the horse !
5. Conclusions and Resolutions of the Workshop
1. In view of the great need to provide escorting services to more
than 90% of podu families in Orissa, which remain uncovered by official
programmes, and the positive encouragement of the Government of Orissa
( 30 )
expressed by Shri PK Mohanty, IAS, Secretary, Forests, Animal Husbandry
and Fisheries, the NGOs of Orissa present at the workshop unanimously
accept that they are called upon to play an active role in helping shifting
cultivators to find viable alternatives to podu chasa.
This can be done by either cooperating with official agencies, where
a programme is already functioning, or initiating a programme with a group
which is not yet benefiting from such an intervention.
2. The NGOs realise that they have to equip themselves for this
task, and therefore want to learn from each other, especially from those
agencies which have already gone ahead and gathered experience. They
also expect that agencies at State level, such as OUAT, SIDA, CENDERET,
the Forest Department, the Soil Conservation and Revenue Departments,
will offer orientation programmes, and training in the technical aspects of
micro planning and water shed management.
They want to learn about Chakriya Vikas Pranali, SALT, and Partici-
patory Appraisal Research and Development (PARD), preferably by seeing
how these methods are applied in the field.
3. Depending on the organisational ability and availability of
technically qualified personnel, who can be recruited for the task, or
consulted, the NGOs discern that there are different levels of involvement.
The first level, for which NGOs are by their nature well suited is to
take care of the Human Resource Development aspect by escorting shifting
cultivators according to the Panchashila of Development.
This can be done in projects which are already being run by the
Forest Department, the ITDA, or other official agencies, provided the latter
welcome such cooperation. The NGO can also initiate such a programme
where none exists, especially with groups amongst whom they have been
working already. This can be done in the expectation that when this HRD
has sufficiently progressed, the NGO itself or another NGO or an official
agency pursues the technical inputs of the search for viable alternatives
to shifting cultivation.
( 31)
A second level of intervention, related to the first, but for which
some technical skills are required, is to undertake the collection of data on
extent of podu in an area, changes taking place, also to monitor and
evaluate how programmes are faring, and finally, to offer training to
shifting cultivators in managerial skills of mini-project administration,
watershed management and technical skills about the soil, water and
trees management.
A third and deeper fevel of intervention occurs when an NGO
assumes the role of lead agency, and besides the HRD aspects and
activities involved in the second level, undertake the integral rehabilitation of
the shifting cultivators taking care of the four faces of rehabilitation:
(i) natural resources development, including mini-project planning and
watershed management, (ii) Commercial resources, taking care that the
interface with the market functions smoothly, (iii) physical development,
assuring the other infrastructures, roads, drinking water, schools, health,
function and (iv) human resources development.
Only well established NGOs, with technical personnel amongst
their staff, or recruited for the purpose can think of this third level of
intervention.
It would be desirable if some NGOs in Orissa undertake such
work on pilot basis and try out methods of rehabilitation, such as Chakriya
Vikas Pranali, Sloping Agricultural Land Technology (SALT), and other
methods which have been documented by the ICAR.
4. When choosing an area for adoption, the NGO and for that
matter, the official agencies also, should pay attention to the following
points :
a. Avoid overlapping or duplicating efforts, or worse, working at
cross purposes with other agencies. On the contrary, it is desirable to
keep agencies in the neighbourhood informed of what one intends to do.
b. The ‘natural’ unit for undertaking alternatives, is normally a
watershed area, consisting of a tract of land, drained by a particular
Stream, inhabited by a particular group of people, who engage in podu
chasa.
( 32 )
A water shed is a technical term and an NGO keen to help with
alternatives will do well to consult a technical person who can establish
the natural boundaries of the watershed in which the NGO wants to
operate.
NGOs will do well not to overstretch themselves, but rather work
in an intensive manner, till they find a formula which yields success. Let
them not spread their efforts too thinly.
c. The NGO must make up its mind whether it is taking up HRD,
and data collection, monitoring and training, with an existing official
programme, or whether it will take up an area, where no official programme
is in progress.
A clear understanding has to be arrived at with the other agency(ies)
and with the people, before an intervention takes place. A memorandum of
understanding can be drafted in written form. The Collector must be kept
informed.
5. The intervening agency should first be convinced and then
convince the people regarding the economic viability of alternatives. Unless
this message is conveyed to the people, it will be difficult to motivate them
to give up podu.
The economics of various alternatives should therefore be worked.
out in terms of economic returns (income per annum) and in terms of
creation of employment (mandays per annum).
One of technical agencies attached to the Podu Cell should help
NGOs who seek help to work out these economics of alternatives.
6. An intervention towards alternatives can only be effective if the
agency initiating it has also been exposed to the technical aspects of the
alternatives and is acquainted with mini-project planning and watershed:
management. Grassroot workers have also to acquire a basic knowledge of
soil, water, plant, trees, grasses management. Therefore orientation and.
training need to be organised at two levels.
( 33 )
a. For the NGOs and their Staff, an orientation to alternatives,
watershed management, mini-project planning, technical aspects of soil,
water, conservation, trees, grasses, etc. is necessary. These can be offered
at State level in a series of five-day programmes, strung out over a period of
six months to a year.
b. For Grassroot Workers of the NGOs, some NGOs in various
districts, where podu containment is going on, will have to be enabled to
function as Village Forester Training Centres (VFTCs), and offer one week or
longer programmes to grassroot workers deputed by the NGOs. These
VFTCs will in turn need the technical assistance of the OUAT, retired
foresters, the Podu Cell. Suitable material will have to be prepared in Oriya,
or in tribal languages (Kul).
7. A standardised form for collection of field data has to be evolved,
in order to get an adequate view of the bench mark situation, before the
intervention takes place, and then the subsequent changes that occur.
These forms should be such that they can be understood and filled in
by the NGOs and other agencies.
In drafting the forms, other agencies will have to be consulted,
including the Orissa Remote Sensing Application Centre (Orissa).
8. In order to facilitate and animate the efforts of NGOs and official
agencies towards alternatives, a Shifting Cultivation Management Cell, in
short, a Podu Cell has to be set up at State level in the very near future.
The task of this Cell is to make information available on technical,
economic and other matters, to provide for suitable training, to put into
place asystem of monitoring and evaluation, to maintain liaison between
various agencies, official and non-official, and to share information about
what happens with a wider audience.
The Cell will have representatives of State departments concerned
with podu, forest, agriculture, soil conservation, revenue, tribal welfare,
some NGO representatives, an anthropologist, faculty members from OUAT
and CENDERET.
( 34 }
The Cell! will be informal in nature.
9. To do full justice to the technical aspects of alternatives to
shifting cultivation, however, more may be needed. A technical resource
agency, similar to AFPRO or Bharatiya Agro-Industries Foundation (BAIF),
Pune may be needed. AFPRO (Delhi) has developed competency in
watershed management in dry areas of Maharashtra, and is consulted by
official as well as non-official agencies. The BAIF has developed a model
of its own for rehabilitating tribal people.
Unless a sound resource centre is available for technical inputs
in rehabilitation of podu chasa farmers, the efforts of the NGOs and of
official agencies such as the ITDAs too, may remain amateurish in nature,
and not really yield the results, that are hoped for.
10. The NGOs who opt for alternatives to shifting cultivation
obviously need funding for this work. Participants from NGOs were of
unanimous opinion that such should not be routed through Government
channels, but be provided directly. The money may be of Indian origin, but
as the Forest Department in Orissa is obtaining funds for its Social Forestry
Programme from a foreign donor agency, there ts no inhibition if the NGOs
can also draw from this source, or other foreign.donors.
11. Since women play such an important role in shifting cultivation,
and in the alternatives to it also, special attention has to be paid to their
views and interests. Income generation programmes for women may have
to form an integral part of alternatives. to shifting cultivation.
Care has to be taken that women have a decision taking structure of
their own, if they cannot interact as equais with men, in the village forest
committees.
12. As suggested by Shri PK Mohanty, at the inauguration, the
NGOs will lend a willing hand to instill new life in the village forest
committees which have already been set up by Government, for improve-
ment of their functioning.
( 35 )
These village committees should grow into the decision making foci
where alternatives to pudu chasa and modalities are decided upon.
13. Certain individuals in Orissa have established excellent rapport
with the forest dwellers, and have in the past been instrumental in animating
people’s movements towards forest protection, as in Kesharpur area of Puri
district. Prof. Radha Mohan and a few other university teachers have played
such a role. .
The Government of Orissa is being requested to cede the services of
these individuals, for the sake of setting into motion a forest protection
movement amongst the shifting cultivators. It is felt: that the talents of
these persons will be put to better use in such a situation, than if they
remain limited to classroom teaching.
14. One of the reasons why shifting cultivators have hesitated to
adopt alternatives, is because there has been hesitation by Government to
give them land pattas. The willingness of the Government to provide
usufructory rights is a step in the right direction, but is it enough ?
This is sure: as long as the highest instances in the Government
of Orissa do not come out with a clear policy statement which assures land
to the tiller, no efforts to find alternatives to shifting cultivation will find
a lasting solution.
The representatives of the NGOs at the workshop also requested the
Government of Orissa to have a second look at adopting the plantation
approach as an alternative to shifting cultivation and leasing large tracts
of land to private industrialists. The long-term wisdom of such step can
be doubted.
If plantations are an answer, let them rather be controlled and
managed by cooperative groups of rehabilitated shifting cultivators.
From past experience, it is clear that once shifting cultivators give
up podu chasa and take to settled agriculture, there is a great danger of
their loosing Jand to traders and other interests. The NGOs have to pay
very special attention, as part of their monitoring function (see point no. 3)
( 36 )
to what happens in this respect, and take effective steps with the State
authorities to prevent renewed alienation of tribal land.
15. NGQs cannot be expected to be fully effective and up-to-date
in their efforts, unless they are kept informed about changes in the
Government policies, procedures, rules, facilities.
Itis for the official departments to see that this is done. This can
take place via the Podu Cell which can pass down the information to the
NGOs. It also is desirable that at District Jevel, interaction between Govern-
ment agencies and NGOs engaged in rehabilitation of shifting cultivators, be
very intensive and they meet each other every two or three months in an
informal manner.
Se Shs.
8.
9.
10.
11.
12.
13.
14.
15.
16.
ee
18.
19.
20.
21,
22.
23.
24.
25.
26.
27,
28.
LIST OF PARTICIPANTS AT THE WORKSHOP
Mr Shanti Ranjan Behera
Mr MC Das
Dr Nityananda Patnaik
Mr Durga Das
Mr Harishchandra Dash
Mr Bhagawan Patra
Ms Sandhya Nayak
Mr NR Das Patnaik
Mr GC Sengupta
Mr Dilip Samantaray
Mr Sarangadhar Samal
Mr AV Swamy
Mr GC Mallick
Mr Dinesh D’Silva
Mr AJ Jagennath Raju
Mr TB Bennarjeedas
Dr SN Patra
Mr Kedareswar
Mr Duryadhan Barik
Mr Santosh Kr Panda
Mr Parasbhat
Mr KC Sahoo
Mr Kedarnath Ranjit
Mr Badal Kr Tah
Dr PK Das
Ms Anthia Madiath
Mr DN Rao
Mr Shankarsana Hota
SODA, Baripada
NIPDIT, Phulbani
SSADRI, Bhubaneswar
PALLISHRI, Gasiput
Society for Leprosy
Amelioration & Rehabilitation,
Konark
Palli Unnayan Sewa Samiti,
Naharkunta, Puri
Gumusar Mahila Sangathan,
Phulbani
VRO, Chandikhole
Tagore Society for Rural
Development, Bhubaneswar
OSS!I, Baramba, Cuttack
NYSASRI, Santhapur, Dhenkanal
VISWAS, Khariar Rd, Kalahandi
DNNS, Bahanga, Balasore
SAMMAN, Berhampur
KMDS, Parlakhemundi
REALS, Dharmalaxmipuram
OUAT, Bhubaneswar
Darbar Sahitya Sansad, Arapada,
Puri
Darbar Sahitya Sansad, Puri
LOKSHAKTI, Balasore
PRDATA, Phulbani
Solar, Gopalpur Village
CYSD, Bhubaneswar
ANKURAN, Narayanpatna
Orissa Environmental Society
Bhubaneswar
Gram Vikas, Berhampur
Gram Vikas, Berhampur
PIPAR, Dhenkanal
29.
30.
31.
32.
33.
34.
35,
36.
37.
38.
39.
40.
41.
42.
43.
44.
45.
46.
47.
48.
49.
50.
51.
52.
53.
54,
55.
Mr AK Bansal
Mr Ashok Dalavai, IAS
Dr KK Mohanty
Mr B Choudhury
Mr R Jamuda, IAS
Mr UN Behera
Ms Neera Mendiratta
Mr Kundan Kumar
Mr Siddhartha Sahu
Fr Augustin Karinkutyil
Mr C Nayak
Mr J Parichha
Mr Akshaya Kr Mishra
Mr Bhajagovinda Das
Mr J. Maharana
Mr Sudhir Behera
Mr GS Padhi
Mr Nagendra Kr Acharya
Mr LK Patnaik
Mr S Bose
Mr MF Ahmed
Mr CG Mishra
Mr M Sunil Kumar
Mr Hemant Nayak’
Mr A Lugun, IFS
Prof Radha Mohan
Ms Binodini Hota
( 38 )
IDC, Bhubaneswar
ITDA, Rayagada
Tribal & Harijan Research
cum Training Institute, Bhubaneswar
THRTI, Bhubaneswar
Director, Tribal Welfare,
Bhubaneswar
VARRAT, Keonjhar
SIDA, Bhubaneswar
SIDA, Bhubaneswar
World Vision of India, Bhubaneswar
Catholic Charities, Khurda Rd, Jatni
TRUP, G Udaygiri, Phulbani
Jan Vikas, Baliguda, Phulbani
NYSASDRI, Dhenkanal
JAGARANA, Gudari, Koraput
Banabasi Sewa Samiti,
Baliguda, Phulbani
SIDA, Bhubaneswar
Conservator of Forest,
Forest Department, Bhubaneswar
AUHAS, Bhubaneswar
Director, Social Forestry Project
Joint Director,
Social Forestry Project
Regional Joint Director,
social Forestry Project
Conservator of Forest,
Working Plan Circle, Orissa
Lecturer, NISWASS, Bhubaneswar
Gumusar Mahila Sangathan,
Phulbani
Government of India
SAMBHAV, Puri
Women’s Association for .
Service & Employment, Sambalpur
56,
57.
58,
59.
60.
61.
62.
63.
64.
65.
66.
67.
68.
69.
( 39 )
Mr Manoj Kr Pradhan
Dr Ananta Sahoo
Fr Romuald D’Souza
Fr MVd Bogaert sj
Prof SP Das
Dr Latha Ravindran
Fr Paul Fernandes sj
Ms Bharati Ray
Mis Arati Padhee
Ms Bonani Samall
Mr Sudhanshu Shekhar Singh
Mr Rajesh Mishra
Mr Prabhakar Senapati
Mr DN Rao
CPSW, Bhubaneswar
THRTI, Bhubaneswar
Xavier Institute of Management,
Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
Xavier Institute of Management,
Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
CENDERET, Xavier Institute of
Management, Bhubaneswar
REALS, Dharmalaxmipuram
LIST OF APPENDICES
Official Documents
1.
Z-
National Forest Policy 1988.
D.O. from the Secretary, Environment & Forests, Government of
India, NO : 6-21/89-FP, dated 1st June 1990.
Extracts from ‘Approach to the Eighth Five Year Plan 1990-95’,
Government of Orissa, Forest, Fisheries & Animal Husbandry
Department Resolutions of 1.8.88 and 11.12.90.
‘How to do it’’ Documents
5.
6.
7;
Drought Proofing, through Chakriya Vikas Pranali.
Sloping Agricultural Land Technology (SALT I, II, Hl). 7
VANSDA, A Unique Mode of Tribal Rehabilitation.
HRD for Alternatives to Shifting Cultivation, Extracts from the
Working Paper
8.
10.
Keeping People at the Centre of the Stage, Panchashila of People’s
Development.
Coordination between Agencies, A Possible Pattern.
Action Programme During the First Year of Operation.
APPENDIX 1
GOVERNMENT OF INDIA
No. 3-1/86-FP
Ministry of Environment and Forests
(Department of Environment, Forests & Wildlife)
Paryavaran Bhavan, CGO Complex,
Lodi Road, New Delhi-110 003
Dated the 7th December, 1988
RESOLUTION
National Forest Policy. 1988
1. Preamble
1.1. In Resolution No. 13/52-F, dated the 12th May, 1952, the
Government of India in the erstwhile Ministry of Food and Agriculture
enunciated a Forest Policy to be followed in the management of State
Forests in the country. However, over the years, forests in the country have
suffered serious depletion. This ts attributable to relentless pressures arising
from ever-increasing demand for fuelwood, fodder and timber, inadequacy
of protection measures; diversion of forest lands to non-forest uses without
ensuring compensatory afforestation and essential environmental safeguards;
and the tendency to look upon forests as revenue earning resource. The
need to review the situation and to evolve, for the future, a new strategy of
forest conservation has become imperative. Conservation includes preserva-
tion, maintenance, sustainable utilisation, restoration, and enhancement of
the natura] environment. It has thus become necessary to review and revise
the Nationai Forest Policy.
2. Basic Objectives
2.1. The basic objectives that should govern the National Forest
Policy are the following :
— Maintenance of environmental stability through preservation and, where
necessary, restoration of the ecological balance that has been adversely
disturbed by serious depletion of the forests of the country.
( 42 )
— Conserving the natural heritage of the country by preserving the
remaining natural forests with the vast variety of flora and fauna, which
represent the remarkable biological diversity and genetic resources of
the country.
— Checking soil erosion and denudation in the catchment areas of rivers,
lakes, reservoirs in the interest of soil and water conservation, for
mitigating floods and droughts and for the retardation of siltation of
reservoirs.
— Checking the extension of sand-dunes in the desert areas of Rajasthan
and along the coastal tracts.
— Increasing substantially the forest/tree cover in the country through
massive afforestation and social forestry programmes, especially on
all denuded, degraded and unproductive lands,
— Meeting the requirements of fuelwood, fodder, minor forest produce
and small timber of the rural and tribal populations.
— Increasing the productivity of forests to meet essential national needs.
— Encouraging efficient utilisation of forest produce and maximising
substitution of wood.
— Creating a massive people’s movement with the involvement of women,
for achieving these objectives and to minimise pressure on existing
forests.
2.2. The principal aim of Forest Policy must be to ensure environ-
mental stability and maintenance of ecological balance including
atmospheric equilibrium which are vital for sustenance of all lifeforms,
human, animal and plant. The derivation of direct economic benefit must
be subordinated to this principal aim.
3. Essentials of Forest Management
3.1. Existing forests and forest lands should be fully protected and
their productivity improved. Forest and vegetal cover should be increased
rapidly on hill slopes, in catchment areas of rivers, lakes and reservoirs and
ecean shores and on semi-arid, arid and desert tracts.
( 43)
3:2: Diversion of good and productive agricultural lands to forestry
should be discouraged in view of the need for increased food production.
3.3. For the conservation of total biological diversity, the network of
national parks, sanctuaries, biosphere reserves and other protected areas
should be strengthened and extended adequately.
3.4. Provision of sufficient fodder, fuel and pasture, specially in
areas adjoining forest, is necessary in order to prevent depletion of forests
beyond the sustainable limit. Since fuelwood continues to be the
predominant source of energy in rural areas, the programme of afforestation
should be intensified with special emphasis on augmenting fuelwood
production to meet the requirement of the rural people.
3.5; Minor forest produce provides sustenance to tribal population
and to other communities residing in and around the forests. Such produce
should be protected, improved and their production enhanced with due
regard to generation of employment and income.
4. Strategy
4.1. AREA UNDER FORESTS
The national goal should be to have a minimum of one-third of the
total land area of the country under forest or tree cover. In the hills and in
mountainous regions, the aim should be to maintain two-third of the area
under such cover in order to prevent erosion and land degradation and to
ensure the stability of the fragile eco-system.
4.2. AFFORESTATION, SOCIAL FORESTRY & FARM FORESTRY
4.2.1. A massive need-based and_ time-bound programme of
afforestation and tree planting, with particular emphasis on fuelwood and
fodder development, on all degraded and denuded lands in the country,
whether forest or non-forest land, is a national imperative.
4.2.2. It is necessary to encourage the planting of trees alongside of
roads, railway lines, rivers and streams and canals, and on other unutilised
lands under State/corporate, institutional or private ownership. Green belts
( 44 )
should be raised in urban/industrial areas as well as in arid tracts. Such a
programme will help to check erosion and desertification as well as improve
the micro-climate.
4.2.3. Village and community lands, including those on foreshores
and environs of tanks, not required for other productive uses, should be
taken up for the development of tree crops and fodder resources. Technical
assistance and other inputs necessary for initiating such programmes should
be provided by the Government. The revenues generated through such
programmes should belong to the panchayats where the lands are vested in
them; in all other cases, such revenues should be shared with the local
communities in order to provide an incentive to them. The vesting, in
individuals, particularly from the weaker sections (such as landless labour,
small and marginal farmers, scheduled castes, tribals, women) of certain
ownership rights over trees, could be considered, subject to appropriate
regulations; beneficiaries would be entitled to usufruct and would in turn
be responsible for their security and maintenance.
4.2.4. Land laws should be so modified wherever necessary so as
to facilitate and motivate individuals and institutions to undertake tree-
farming and grow fodder plants, grasses and legumes on their own land.
Wherever possible, degraded lands should be made available for this
purpose either on lease or on the basis of a tree-patta scheme. Such leasing
of the land should be subject to the land grant rules and land ceiling laws.
Steps necessary to encourage them to do so must be taken. Appropriate
regulations should govern the felling of trees on private holding.
4.3. MANAGEMENT OF STATE FORESTS
4.3.1. Schemes and projects which interfere with forests, that clothe
steep slopes, catchments of rivers, lakes, and reservoirs, geologically
unstable terrain and such other ecologically sensitive areas should be
severely restricted. Tropical rain/moist forests, particularly in areas like
Arunachal Pradesh, Kerala, Andaman & Nicobar Islands, should be totally
safeguarded,
4.3.2. No forest should be permitted to be worked without the
Government having approved the management plan, which should be in a
( 45 )
prescribed format and in keeping with the National Forest Policy. The
Central Government should issue necessary guidelines to the State Govern-
ment in this regard and monitor compliance.
4.3.3. In order to meet the growing needs for essential goods and
services which the forests provide, it is necessary to enhance forest cover
and productivity of the forests through the application of scientific and
technical inputs. Production forestry programmes, while aiming at enhancing
the forest cover in the country, and meeting national needs, should also be
Oriented to narrowing, by the turn of the century, the increasing gap
between demand and supply of fuelwood. No such programme, however,
should entail clear-felling of adequately stocked natural forests. Nor should
exotic species be introduced, through public or private sources, unless
long-term scientific trials undertaken by specialists in ecology, forestry and
agriculture have established that they are suitable and have no adverse
impact on native vegetation and environment.
4.3.4. Rights and Concessions
4.3.4.1. The rights and concessions, including grazing, should
always remain related to the carrying capacity of forests. The capacity itself
should be optimised by increased investment, silvicultural research and
development of the area. Stall-feeding of cattle should be encouraged. The
requirements of the community, which cannot be met by the rights and
concessions so determined, should be met by development of social forestry
outside the reserved forests.
4.3.4.2. The holders of customary rights and concessions in forest
areas should be motivated to identify themselves with the protection and
development of forests from which they derive benefits. The rights and
concessions from forests should primarily be for the bonafide use of the
communities living within and around forest areas, specially the tribals.
4.3.4.3. The life of tribals and other poor living within and near
forests revolves around forests. The rights and concessions enjoyed by them
should be fully protected. Their domestic requirements of fuelwood, fodder,
minor forest produce and construction timber should be the first charge on
( 46 )
forest produce. These and substitute materials should be made available
through conveniently located depots at reasonable prices.
4.3.4.4. Similar consideration should be given to scheduled castes
and other poor living near forests. However, the area which such considera-
tion should cover, would be determined by the carrying capacity of the
forests.
4.3.4.5. Wood is in short supply. The long-term solution for meeting
the existing gap lies in increasing the productivity of forests, but to relieve
the existing pressure on forests for the demands of railway sleepers,
construction industry (particularly in the public sector), furniture and
panelling, mine-pitprops, paper and paper board etc. substitution of wood
needs to be taken recourse to. Similarly, on the front of domestic energy,
fuelwood needs to be substituted as far as practicable with alternate sources
like biogas, LPG and_ solar energy. Fuel-efficient ‘‘Chulhas” as a measure
of conservation of fuelwood need to be popularised in rural areas.
4.4. DIVERSION OF FOREST LANDS FOR NON-FOREST PURPOSES
4.4.1. Forest land or land with tree cover should not be treated merely
as a resource readily available to be utilised for various projects and
programmes, but as a national asset which requires to be _ properly
safeguarded for providing sustained benefits to the entire community.
Diversion of forest land for any non-forest purpose should be subject to the
most careful examinations by specialists from the standpoint of social and
environmental costs and benefits. Construction of dams and reservoirs,
mining and industrial development and expansion of agriculture should be
consistent with the needs for conservation of trees and forests. Projects
which involve such diversion should at least provide in their investment
budget, funds for regeneration/compensatory afforestation.
4.4.2. Beneficiaries, who are allowed mining and quarrying in forest
land and in land covered by trees should be required to repair and
re-vegetate the area in accordance with established forestry practices. No
mining lease should be granted to any party, private or public, without a
proper mine management plan appraised from the environmental angle and
enforced by adequate machinery.
( 47 )
4.5. WILDLIFE CONSERVATION
Forest Management should take special care of the needs of wildlife
conservation, and forest management plans should include prescriptions for
this purpose. It is specially essential to provide for ‘corridors’ linking the
protected areas in order to maintain genetic continuity between artificially
separated sub-sections of migrant wildlife.
4.6. TRIBAL PEOPLE AND FORESTS
Having regard to the symbiotic relationship between the tribal people
and forests, a primary task of all agencies responsible for forest management,
including the forest development corporations should be to associate the
tribal people closely in the protection, regeneration and development of
forests as well as to provide gainful employment to people living in and
around the forest. While special attention to the following :—
— Oneof the major causes for degradation of forest is illegal cutting and
removal by contractors and their labour. In order to put an end to this
practice, contractors should be replaced by institutions such as tribal
cooperatives, labour cooperatives, government corporations, etc. as
early as possible;
— Protection, regeneration and optimum collection of minor forest produce
along with institutional arrangements for the marketing of such produce;
— Development of forest villages on par with revenue villages;
— Family oriented schemes for improving the status of tribal beneficiaries;
and
— Undertaking integrated area development programmes to meet the
needs of the tribal economy in and around the forest areas, including
the provision of alternative sources of domestic energy on a subsidised
basis, to reduce pressure on the existing forest areas.
4.7. SHIFTING CULTIVATION
Shifting cultivation is affecting the environment .and productivity of
land adversely. Alternative avenues of income, suitably harmonised with the
right land use practices, should be devised to discourage shifting cultivation.
( 48 )
Efforts should be made to contain such cultivation within the area already
affected, by propagating improved agricultural practices. Area already
damaged by such cultivation should be rehabilitated through social forestry
and energy plantations.
4.8. DAMAGE TO FORESTS FROM ENCROACHMENTS, FIRES AND
GRAZING
4.8.1. Encroachment on forest lands has been on the increase. This
trend has to be arrested and effective action taken to prevent its continu-
ance. There should be no regularisation of existing encroachments.
4.8.2. The incidence of forest fires in the country is high. Standing
trees and fodder are destroyed on a large scale and natural regeneration
annihilated by such fires. Special precautions should be taken during the
fire season. Improved and modern management practices should be adopted
to deal with forest fires.
4.8.3. Grazing in forest areas should be regulated with the involve-
ment of the community. Special conservation areas, young plantations and
regeneration areas should be fully protected. Grazing and browsing in
forest areas need to be controlled. Adequate grazing fees should be levied
to discourage people in forest areas from maintaining large herds of non-
essential livestock.
4.9. "FOREST BASED INDUSTRIES
The main considerations governing the establishment of forest-based
industries and supply of raw material to them should be as follows :
— As far as possible, a forest-based industry should raise the raw material
needed for meeting its own requirements, preferably by establishment
of a direct relationship between the factory and the individuals who
can .grow the raw material by supporting the individuals with inputs
including credit, constant technical advice and finally harvesting and
transport services.
— No forest-based enterprise, except that at the village or cottage level,
should be permitted in the future unless it has been first cleared after a
careful scrutiny with regard to assured availability of raw material, In
any case, the fuel, fodder and timber requirements of the local
population should not be sacrificed for this purpose,
( 49 )
— Forest based industries must not only provide employment to local
people on priority, but also involve them fully in raising trees and
raw material.
— Natural forests serve as a gene pool resource and help to maintain
ecological balance. Such forests will not, therefore, be made available
to industries for undertaking plantation and for any other activities.
— Farmers, particularly small and marginal farmers would be encouraged
to grow, on marginal/degraded lands available with them, wood species
required for industries. These may also be grown along with fuel and
fodder species on community lands not required for pasture purposes,
and by Forest department/corporations on degraded forests, not
earmarked for natural regeneration.
— The practice of supply of forest produce to industry at concessional
prices should cease. Industry should be encouraged to use alternative
raw materials. Import of wood and wood products should be
liberalised.
— The above considerations will however, be subject to the current policy
relating to Jand ceiling and land-laws.
4.10. FOREST EXTENSION
Forest conservation programme cannot succeed without the willing
support and cooperation of the people. It is essential, therefore, to inculcate
in the people, a direct interest in forests, their development and _ conserva-
tion, and to make them conscious of the value of trees, wild life and nature
in general. This can be achieved through the involvement of educational
institutions, right from the primary stage. Farmers and interested people
should be provided opportunities through institutions like Krishi Vigyan
Kendras, Trainers’ Training Centres to learn agrisilvicultural and _ silvicultural
techniques to ensure optimum use of their land and water resources. Short
term extension courses and lectures should be organised in order to educate
farmers. For this purpose, it is essential that suitable programmes are
propagated through mass media, audio-visual aids and the extension
machinery.
( 50 )
4.11. FORESTRY EDUCATION
Forestry should be recognised both as a scientific discipline as well
as a profession. Agriculture universities and institutions dedicated to the
development of forestry education should formulate curricula and courses
for imparting academic education and promoting post-graduate research
and professional excellence, keeping in view the manpower needs of the
country. Academic and professional qualifications in forestry should be kept
In view for recruitment to the Indian Forest Service and the State Forest
Service. Specialised and orientation courses for developing better manage-
ment skills by inservice training need to be encouraged, taking into account
the latest development in forestry and related disciplines.
4.12. FORESTRY RESEARCH
With the increasing recognition of the importance of forests for
environmental health, energy and employment, emphasis must be laid on
scientific forestry research, necessitating adequate strengthening of the
research base as well as new priorities for action. Some broad priority areas
of research and development needing special attention are :—
i) Increasing the productivity of wood and other forest produce per unit
of area per unit time by the application of modern scientific and
technological methods.
ji) Revegetation of barren/marginal/waste/mined lands and watershed
areas.
iii) Effective conservation and management of existing forest resources
(mainly natural forest eco-systems).
iv) Research related to social forestry for rural/tribal development.
v) Development of substitutes to replace wood and wood products.
vi) Research related to wildlife and management of national parks and
sanctuaries.
4.13. PERSONNEL MANAGEMENT
Government policies in personnel management for professional
foresters and forest scientists should aim at enhancing their professional
competence and status and attracting and retaining qualified and motivated
personnel, keeping in view particularly the ardous nature of duties they have
to perform, often in remote and inhospitable places.
( 5st )
4.14. FOREST SURVEY AND DATA BASE
Inadequacy of data regarding forest resources is a matter of concern
because this creates a false sense of complacency. Priority needs to be
accorded to completing the survey of forest resources in the country on
scientific lines and to updating information. For this purpose, periodical
collection, collation and publication of reliable data on relevant aspects of
forest management needs to be improved with recourse to modern
technology and equipment.
4.15. LEGAL SUPPORT AND INFRASTRUCTURE DEVELOPMENT
Appropriate legislation should be undertaken, supported by adequate
infrastructure, at the Centre and State levels in order to implement the
Policy effectively.
4.16. FINANCIAL SUPPORT FOR FORESTRY
The objectives of this revised Policy cannot be achieved without the
investment of financial and other resources on a substantia! scale. Such
investment is indeed fully justified considering the contribution of forests
in maintaining essential ecological processes and life-support systems
and in preserving genetic diversity. Forests should not be looked upon as a
source of revenue. Forests are a renewable natural resource. They are a
national asset to be protected and enhanced for the well-being of the
people and the Nation.
(K. P. Geethakrishnan)
Secretary to the Government of India
APPENDIX 2
No. 6-21/89-F.P.
GOVERNMENT OF INDIA
Ministry of Environment and Forests
Department of Environment, Forests and Wildlife
Paryavaran Bhavan, C.G.O. Complex, B-Block
Lodi Road, New Delhi
Dated : tst June, 1990
To
The Forest Secretaries
(All States/UTs)
Subject : Involvement of village communities and voluntary agencies for
regeneration of degraded forest lands.
Sir,
The National Forest Policy, 1988 envisages people’s involvement in
the development and protection of forests. The requirements of fuelwood,
fodder and small timber such as house-building material, of the tribals and
other villagers living in and near the forests, are to be treated as first charge
on forest produce. The Policy document envisages it as one of the essentials
of forest management that the forest communities should be motivated to
identify themselves with the development and protection of forests from
which they derive benefits.
2. Ina D.O. Jetter, No. 1/1/88-TMA dated 13th January, 1989 to
the Chief Secretary of your State, the need for working out the modalities
for giving to the village communities, living close to the forest land,
usufructory benefits to ensure their participation in the afforestation
programme, was emphasized by Shri K.P. Geethakrishnan, the then
Secretary (Environment and Forests).
2. Committed voluntary agencies/NGOs, with proven track record,
may prove particularly well suited for motivating and organising village
communities for protection, afforestation and development of degraded
( 53 )
forest land, especially in the vicinity of habitations. The State forest
Departments/Social Forestry Organisations ought to take full advantage of
their expertise and experience in this respect for building up meaningful
people’s participation in protection and development of degraded forest
lands. The voluntary agencies/NGOs may be associated as interface between
State Forest Departments and the local village communities for revival,
restoration and development of degraded forests in the manner suggested
below :—
(i)
(ii)
(iii)
(iv)
(v)
(vi)
The programme should be implemented under an arrangement
between the Voluntary Agency/NGO, the village community
(beneficiaries) and the State Forest Department.
No ownership or lease rights over the forest land should be given to
the beneficiaries or to the Voluntary Agency/NGO. Nor should the
forest land be assigned in contravention of the provisions contained
in the Forest (Conservation) Act, 1980.
The beneficiaries should be entitled to a share in usufructs to the
extent and subject to the conditions prescribed by the State Govern-
ment in this behalf. The Voluntary Agency/NGO should not be
entitled to usufructory benefits.
Access to forest land and usufructory benefits should be only to the
beneficiaries who get organised into a village’ institution, specifically
for forest regeneration and protection. This could be the Panchayat
or the Cooperative of the village, with no restriction on membership.
It could also be a Village Forest Committee. In no case should any
access or tree pattas be given to individuals.
The beneficiaries should be given usufructs like grasses, lops and
tops of branches, and minor forest produce. If they successfully
protect the forests, they may be given a portion of the proceeds from
sale of trees when they mature. (The Government of West Bengal
has issued orders to give 25% of the sale proceeds to the Village
Forest Protection Committees. Similar norms may be. adopted by
other States).
Areas to be selected for the programme should be free from the
claims (including: existing rights, - privileges, concessions) of any
(vii)
(viii)
(ix)
(x)
(xi)
( 54 )
person who is not a beneficiary under the scheme. Alternatively, for
a given site the selection of beneficiaries should be done in such a
way that any one who has a claim to any forest produce from the
selected site is not left out without being given full opportunity of
joining.
The selected site should be worked in accordance with a Working
Scheme, duly approved by the State Government. Such scheme may
remain in operation for a period of 10 years and revised/renewed
after that. The Working Scheme should be prepared in consultation
with the beneficiaries. Apart from protection of the site, the said
Scheme may prescribe requisite operations, eg. inducement to
natural regeneration of existing root stock, seeding, gap filling, and
wherever necessary, intensive planting, soil-moisture conservation
measures etc. The Working Scheme should also prescribe other
operations, eg. fire-protection, maintenance of boundaries, weeding,
tending, cleaning, thinning etc.
For raising nurseries, preparing land for planting and protecting the
trees after planting, the beneficiaries should be paid by the Forest
Department from the funds under the social forestry programme.
However, the village community. may obtain funds from other
Government agencies and sources for undertaking these activities.
It should be ensured that there is no grazing at all in the forest land
protected by the village community. Permission to cut and carry
grass free of cost should be given so that stall feeding is promoted.
No agriculture should be permitted on the forest land.
Along with trees for fuel, fodder and timber, the village community
may be permitted to plant such fruit trees as would fit in with the
overall scheme of afforestation, Such as aonla, imli, mango, mahua,
etc. as well as shrubs, legumes and grasses which would meet local
needs, help soil and water conservation, and enrich the degraded
soils/land. Even indigenous medicinal plants may be grown
according to the requirement and preference of beneficiaries,
(xii)
(xiti)
(xiv)
( 55 )
Cutting of trees should not be permitted before they are ripe for
harvesting. The forest department also should not cut the trees on
the forest land being protected by the village communities except in
the manner prescribed in the Working Scheme. In case of emergency
needs, the village communities should be taken into confidence.
The benefit of people’s participation should go to the village
communities and not to commercial or other interests which may try
to derive benefit in their names. The selection of beneficiaries should
therefore, be done from only those families which are willing to
participate through their personal efforts.
The Forest Department should closely supervise the works. If the
beneficiaries andfor the Voluntary Agency/NGO fail or neglect to
protect the area from grazing, encroachment or do not perform the
operations prescribed in the Working Scheme in a satisfactory
manner, the usufructory benefits should be withdrawn without
paying compensation to anyone for any work that might have been
done prior to it. Suitable provisions in the Memorandum of Under-
standing (MOU) for this purpose should be incorporated.
Yours faithfully,
(Mahesh Prasad)
Secretary to the Government of India
Copy for information and necessary action to :-
1,
Principal Chief Conservator of Forests/Chief Conservator of Forests
(All States/UTs).
Additional Secretary, National Wasteland Development Board, Ministry
of Environment and Forests, New Delhi.
Chief Conservator of Forests (Central) of all Regional Offices located
at : Bhubaneswar, Bangalore, Bhopal, Shillong, Lucknow, Chandigarh.
( 56 )
4. All DIGFs including N.W.D.B., New Delhi.
5. All Officers of the Ministry of Environment and Forests.
(K. M. Chadha)
Joint Secretary to the Government of India
Copy for information to the :-
1. Secretary (Co-ordination), Cabinet Secretariat, Rashtrapati Bhavan,
New Delhi.
2. Secretary, Ministry of Welfare, New Delhi.
3. Secretary, Department of Rural Development, New Delhi.
(K. M. Chadha)
Joint Secretary to the Government of:India
APPENDIX 3
RELEVANT EXTRACTS
from
APPROACH TO THE EIGHTH FIVE YEAR PLAN 1990-95
1, On Tribal People
55. The resource base and the social and cultural heritage of our
Scheduled Tribe population is getting eroded through a combination of
development interventions, commercial exploitation and ineffective - legal
and administrative systems. The trend needs to be arrested as it can
undermine the very survival of these communities. There is growing
articulation and recognition of the fact that mega projects in irrigation,
power and transport often disrupt the life and environment of a large
number of Scheduled Tribal families, while the benefits of these projects
mainly accrue to the populations in the plains. Measures for relief and
rehabilitation in such cases have been neither imaginatively conceived nor
wholeheartedly implemented. It is necessary that the planning and
administrative machinery at different levels shows greater awareness and
sensitivity to this dimension of development and takes steps to ensure that
the lives of Scheduled Tribes are not disrupted in the name of national
progress. More positively, programmes need to be devised with the ‘involve-
ment of the Scheduled Tribes themselves in the light of their own order of
priorities to remove economic, educational and social disparities to which
they are subject. The lines of action here would include, besides access to
minimum social services, assistance in scientific resource conservation,
construction of small water harvesting and storage systems, restoration of
their traditional rights to forest produce and direct links with market and
strengthening of their traditional community organisations.
2. On Environment and Forests
78.. One consequence of pursuing development and_ adopting
technologies without a coherent framework of social objectives has been
large.scale ecologica! degradation and erosion of the natural resource base.
Deforestation, desertification, pollution of the atmosphere and of the rivers,
fast depletion of water tables, and destruction of top soil have all affected
the very survival of our people. A great deal of public consciousness and
( 58 )
debate have been generated on these issues. Several activist and concerned
citizen groups have been focussing attention on what seems like a
constantly deteriorating situation. Improvements in the standards and
quality of life of the people have to be based on sustenance of life support
systems through conservation and regeneration of the natural resource base.
The present generation owes this not only to itself, but also to future
generations and to myriad other species with which its survival its
Organically and irrevocably linked. What is needed is an_ ecological
imagination that informs development thinking.
79. it will not be enough so assert this. There should be more
rigorous scrutiny of the environmental impact of every development scheme,
and ecologically sustainable development accepted as an end _ in itself.
Mechanisms will have to be found by which the ecological consequences
of development schemes become known to the public through an open door
information system, the responses and concerns of affected people are
discussed openly with the relevant authorities, and adequate safeguards to
protect their interests built into the project before it is approved. And there
will be need for sanctions against those responsible for violating ecological
norms and ‘guidelines’.
80. To sustain social and economic development, especially in rural
areas, steps are necessary to protect the remaining forests and to enhance
the biomass resources, especially through development of wastelands.
Realisation of the full potential of forests and wastelands in a sustainable
manner which has substantial employment potential would be a key element
to the revitalisation of the rural economy. Sustainable management of
forests would require an institutional framework which would facilitate
people’s active involvement. Traditionally, management of forest resources
has sought to exclude the people, and the emphasis was on policing the
forests to prevent biotic interferences. Predictably, this did not have the
desired effects and has alienated the people. This has been particularly true
in respect of the tribal populations who‘have been traditionally dependent
on minor forest produce. Indeed, they have a national interest in protecting.
trees. Every efforts needs to be made to promote grassroot level
participation in this task as part of a larger approach to the local area:
planning and development.
APPENDIX 4
GOVERNMENT OF ORISSA
FOREST, FISHERIES & A.H. DEPARTMENT
RESOLUTION
Dated, Bhubaneswar, the 1st August, 1988.
No : 10F (Pron)-47/88/1 7 2 4 0 /FFAH.,
Sub : Protection of Reserve Forest Areas by the Community.
The question of involving village communities for effective protection
and conservation of Reserve Forests was, for sometime past, under the active
consideration of Government. After careful appraisal, Government are of the
view that the task of protecting forests is so urgent and so enormous that
the rural community should be fully and actively involved in it. Accordingly;
it has been decided that the following scheme of involving the rural
community will be implemented in the State. Under this scheme, villagers
will be assigned a specific role in the protection of Reserve Forests
adjoining their villages and will, in return, be granted, under Section 24 of
the Orissa Forest Act, 1972, certain concessions in the matter of meeting
their Bonafide requirement of firewood and small timber.
(1) The concerned Divisional Forest Officer shall assign the
peripheral Reserve Forest areas to the adjoining villages according to the
compartment line. The area in one compartment may cover one or more
villages. Wherever the compartment line does not exist, natural boundary
like nalfla, bridges, etc., will form the demarcation point. Reserve Forest
area notified under Section 18(1) of the wildlife (Protection) Act, 1972 will,
however, be excluded from the purview of the assignment.
(2) The concerned D. F. O. shafl constitute a Forest Protection
Committée for each of the assigned villages. The Committee shall comprise
the Sarpanch of the concerned Gram Panchayat, the Ward Members
belonging to the village, the local Forester, Revenue Inspector, V.L.W, and
such other. persons of. the said village. not exceeding three as may be
nominated by the concerned Grama Panchayat. The total number of the
members of: the Committee shall be atleast eight which shall, as far as:
possible, include persons belonging to the Scheduled Castes or Tribes,
( 60 )
women and landless categories. The Sarpanch of the Gram Panchayat and
the loca! Forester shall be the Chairman and Convenor of the Committee
respectively.
(3) The villages, shall through the Forest Protection Committee,
furnish an undertaking to the concerned D.F.O. for proper up-keep and
maintenance of the assigned Reserve Forest areas. The assigned villages
shall be responsible for fire protection and prevention of felings, thefts of
forest produce and encroachments in the assigned Reserve Forest areas.
The Forest Protection Committee shall be responsible for ensuring
performance of the above functions by villagers of the assigned villages.
(4) For performance of the duties enumerated in para-3, the
villagers shall be entitled to obtain their bonafide requirement of small
timber and firewood for house-hold consumption only and not for sale or
barter. The Forest Protection Committee shall be responsible for proper
distribution of small timber and firewood among the house-holds, keeping
in view the following guidelines :-
(a) The minimum requirements of the house-holds for building and
agriculture purposes should be worked out by the Committee and
the distribution made accordingly on the basis of available produce,
before meeting their demand for other purposes.
(b) As regards supply of firewood, the same shall be apportioned among
the households keeping in view their real requirement as far as
possible.
(5) Small timber and firewood shall be removed from the assigned
Reserve Forest areas only in accordance with a permit issued by the two
members of the Committee authorised for the purpose. The permit issued
as above shall be valid only within the limits of the village boundary to
which the household belongs.
(6) .:The above scheme’ of assignment will come into force with
effect from 2.10.88. In the intervening period, the D.F.Os. will assign
specific Reserve Forest areas in the periphery to the adjoining villages and:
constitute the Forest Protection Committee.
( 61 )
ORDER
Ordered that the Resolution be published in the Extraordinary issue
of the Orissa Gazette.
By. Order of the Governor
P.K. Mohanty
Secretary to Government.
M. No: 17241|FFAH., Dated : 1.8.1988
Copy forwarded to All Departments of Government/Principal Chief
Conservator of Forests, Orissa/All Revenue Divisional Commissioners/All
Collectors for information & necessary action.
Sd/- J. K. Mohapatra
Joint Secretary to Government.
M. No : 17242{/FFAH., Dated : 1.8.1988
Copy forwarded to All Conservator of Forests/All Divisional Forest
Officers (Territorial) for’ information & necessary action. The’ Divisional
Forest Officers are requested to assign specific Reserve Forest areas in -the
periphery to the adjoining villages and constitute a Forest Protection
Committee by. the end of September, 1988 without fail.
Sd/- J. K. Mohapatra
Joint Secretary to Government.:
M. No : 17243/FFAH., Dated : 1.8.1988
Copy forwarded to the Director of Printing, Stationery & Publications,
Orissa, Cuttack with the request to publish it in the extraordinary issue of
the Orissa Gazette. He is requested to send ‘200 copies of it to this
Department.
Sd/- J. K. Mohapatra
Joint Secretary to Government.
( 62 )
GOVERNMENT OF ORISSA
FOREST, FISHERIES & A.H. DEPARTMENT
RESOLUTION
Dated, Bhubaneswar the 13th October 1988
No : 10F (Pron)-47/88] 23638/FFAH
Sub : Protection of Reserve Forest Areas by the Community.
A scheme for involving the rural community in the task of protecting
reserve forests throughout the State has been enunciated by the Govern-
ment in the Resolution No. 17240-FFAH., Dated, 1.8.88. Para-2 of the
aforesaid Resolution envisages constitution of a village-level Forest
Protection Committee comprising the Sarpanch of the concerned Gram
Panchayat, the Ward Members belonging to the village and at the most 3
other persons of the village, to be nominated by the concerned Gram
Panchayat, as the non-official members. In addition, the local Forester,
Revenue Inspector and the V. L. W. are to be included as official members.
(2) After careful re-appraisal, it is now felt by the Government that the
Committee should be constituted in consultation with the local villagers.
(3) Therefore, in partial modification of para-2 of the aforesaid
Resolution, it has been decided that the non-official members of the village
level Forest Protection Committee may be selected by convening a meeting
of the concerned villagers. However, the Sarpanch of the concerned Gram
Panchayat and the Forester shall be the Chairman and Convenor of the
Committee respectively.
ORDER
Ordered that the Resolution be published in the Extraordinary issue
of the Orissa Gazette.
By Order of the Governor
P. K. Mohanty
secretary to Government.
( 63 )
M. No : 23639/FFAH., Dt. 13.10.88
Copy forwarded to All Departments of Government/Principal Chief
Conservator of Forests, Orissa/All Revenue Divisional Commissioners/All
Collectors for information & necessary action.
Sd/- J. K. Mohapatra
Joint Secretary to Government.
M. No : 23640/FFAH., Dated: 13.10.88
Copy forwarded to All Conservators of Forests/All Divisional Forest
Officers (Territorial) for information & necessary action.
Sd/- J. K. Mohapatra
Joint Secretary to Government.
M, No : 23641 /FFAH., Dated : 13.10.88
Copy forwarded to the Director of Printing, Stationery & Publications,
Orissa, Cuttack with request to publish it in the extra-ordinary issue of the
Orissa Gazette. He is requested to send 200 copies of it to this Department.
Sd/- J. K. Mohapatra
Joint Secretary to Government.
( 64 )
GOVERNMENT OF ORISSA
FOREST, FISHERIES & A.H. DEPARTMENT
No : 1 OF (Pron)-47/88] 27328/FFAH., Dated : 14.12.88
From:
Shri J. K. Mohapatra, IAS,
Joint Secretary to Government.
To
The Principal Chief:Conservator of:Forests;.
Orissa, Cuttack.
Sub : Protection of reserve forest areas by the community.
Sir,
| am directed to refer to your letter No. 23370/9F-Legal-65/88.,
dated 1st.December, 1988 and.to say that the. adjoining. villagers assigned
the functions.of. protection, up-keep and maintenance of the peripherial
reserve. forest areas would be entitled to obtain their bonafide requirement
of small! timber and firewood for house-hold consumption free of cost. They
need not pay-royalty as prescribed in the ‘Rules on Schedule of Rates for
Forest Produces. in Orissa, 1977’. This clarification may be brought to the
notice of all concerned.
Yours faithfully,
Sd/- J. K. Mohapatra
Joint Secretary to Government.
( 65 )
GOVERNMENT OF ORISSA
FOREST, FISHERIES & A.H. DEPARTMENT
No. 1 OF (Pron) 4{90/29525/FFAH., Bhubaneswar, Dated, 11.12.1990
RESOLUTION
Sub: Protection of Reserved Forest and Protected Forest Areas by
the Community and Enjoyment of certain usufructs by the:
Community.
The question of involving village community for effective protection
and conservation of Reserved Forest and Protected Forest was for some
time past, under active consideration of Government. After careful
consideration, Government are of the view that the task of protecting forest
is sO urgent and enormous that the community should be fully and actively
involved in it. Accordingly, it has been decided that the following scheme
of involving the rural community will be implemented in the State. Under
this Scheme, villagers will be assigned a specific role in the protection of
Reserved Forest and Protected Forests adjoining their villages and will, in
return, be granted under Section 24 of the Orissa Forest Act, 1972 certain
concessions in Reserved Forest and taking into account prevalent practice
and rights, if any, in respect of Protected Forest in the matter of meeting
their bonafide requirement of firewood and small timber.
(1) The concerned Divisional Forest Officer shall assign the peripheral
Reserved Forest and Protected Forest area to the adjoining villages
according to the compartment line. The area in one compartment may cover
one or mora villages. Wherever the compartment line does not exist, natural
boundary like nalla, bridges, etc. will form the demarcation point. Reserve
Forest areas notified under Section 18 (1) of the Wild Life Protection Act
1972 will, however be excluded from the purview of the assignment.
(2) The concerned: Divisional Forest Officer shall constitute a Forest
Protection Committee for each of the concerned villages in consultation
with the local villagers. The Committee shall comprise the-Sarpanch of the
concerned Gram Panchayat, the Ward Members belonging to the village, the
local Forester, Revenue Inspector, V.L.W. and such other non-official
members of the village. to be selected by convening a meeting of the
concerned villagers. The total number of the members of the Committee
( 66 )
shall be atleast 8 which shall, as far as possible, include women and
persons belonging to the S.C. or S.T. and the landless, categories. The
Sarpanch of the Gram Panchayat and the local Forester shail be the
Chairman and convenor of the Committee respectively.
(3) The villagers shall, through the Forest Protection Committee, furnish
an undertaking to the concerned Divisional Forest Officer for proper
up-keep and maintenance of the assigned Reserved Forest and Protected
Forest areas. The assigned villages shall be responsible for fire fighting and
prevention of illicit fellings, theft of forest produce and encroachment in the
assigned Reserved Forest and Protected Forest areas. The Forest Protection
Committee shall be responsible for ensuring performance of the above
functions by villagers of the assigned villages.
(4) For performance of the duties enumerated in para-3, the villagers
shall be entitled to obtain their bonafide requirement of small timber and
firewood for house-hold consumption only and not for sale or barter.
The Forest Protection Committee shall be responsible for proper
distribution of small timber and firewood among the house-holds, keeping
in view the following guidelines:
(a) The minimum requirements of the house-hold for building and
agriculture purposes should be worked out by the Committee and
the distribution made accordingly on the basis of available produce,
before meeting their demand for other purposes.
(b) As regards supply of firewood, the same shall be apportioned among
the households keeping in view their real requirement as far as
possible.
(5) Small timber and firewood shall be removed from assigned Reserved
Forest areas and Protected Forest areas only in accordance with a permit.
issued by the two members of the Committee authorised for the purpose. The,
permit issued as above shall be valid only within the limits of the village
boundary to which the household belongs.
(6) This supersedes this Department’s Resolution No. 17240/FFAH.,
dated 1.8.88 and No. 23638/FFAH., dated 13.10.88.
( 67 )
ORDER
Ordered that the Resolution published in the next ordinary issue of
the Orissa Gazette.
By Order of the Governor
P. K. Mohanty
Secretary to Government.
Memo No. 29526/FFAH., Bhubaneswar, dated 17.12.90
Copy forwarded to all Departments of Government/Principal Chief
Conservator of Forests, Orissa/All Revenue Divisional Commissioner/All
Collectors for information and necessary action.
Sd/-
Under Secretary to Government.
Memo No, 29527/FFAH., Bhubaneswar, dated 11.12.90
Copy forwarded to All Conservator of Forests/All Divisional Forest
Officers (Territorial) for information and necessary action.
Sd/-
Under Secretary to Government.
Memo No. 29528/FFAH., Bhubaneswar, dated 11.72.90
Copy forwarded to the Director of Printing, Stationery and Publication,
Orissa, Cuttack with the request to publish it in the extraordinary issue of
the Orissa Gazette. He is requested to send 200 copies of it to this
Department.
Sd/-
Under Secretary to Government.
as
APPENDIX 5
DROUGHT-PROOFING OF DROUGHT-PRONE AREAS
THROUGH
“CHAKRIYA VIKAS PRANALI"
FUNDAMENTALS
All protect, All receive, All pay with pride to keep the cycle of Village/
School fund and employment moving round the year with no
subsequent fund from outside.
Using rain as it falls and where it falls, and not permitting even a drop
to go outside the village limit as surface flow.
Multi-layered planting system to expose unrealised potential of mother
earth, rain, sun, land and human brains and bodies.
Acceptable sharing system as under :—
10% Kalyan Kosh for other school/villages
30% to students and teachers of Chakriya Vikas Pranali
30% to land owner (Govt./ Private)
remaining 30% to Village Development Fund.
Conversion of basic goods into meaningful Secondary products to
promote rural employment right in the village only as far as practicable,
Marketing infrastructure.
MECHANICS OF CHAKRIYA VIKAS PRANALI
Take village/village tola/school-as unit.
Select some stipendary students to start with.
Arrange some stipend from the working system itself in the Shortest
Possible time.
10,
a
12.
13.
14,
15.
( 69 )
Pool land and form a block.
Make small plots (3’ x 3’ or 5° x 5’) with ridges 1’ to 14’ high on all
sides depending on topography.
Plant root, fruit, fuel, fodder, timber, vegetable trees, commercial grasses
depending on soil and socio-economic need of the people.
Make suitable Nurseries.
Make (a) Tanks in Series, (b) Tank within tank, (c) Tanks by the side of
Streams 10’ deeper than the stream-level.
Constitute effective “Sahyogi Samaj”.
All disputes to be settled right in the villages.
Introduce apart from 1:1:1 sharing system, 2:1 and 1:2 (in school).
Commonise “300 Pranali” everywhere.
Open account system with Social audit.
10% of all emoiuments to form part of village-fund
Monitor dynamic changes in the attitude of all towards mother-earth,
having hidden potency to sustain all
SHRMS—CHAKRIYA VIKAS YOJANA
Dak Bunglow Road,
P.O. Daltonganj-822101 (Palamu) Bihar.
APPENDIX 6
SLOPING
AGRICULTURAL LAND
“Oe 4
, ¢ Ha pe es
SHEA DE aN
ed (as sid AN NT ENS Nein Maa n i ae ome
SALT-1 is an agroforesiry Ar wilh agricultural and ARE ; _
forestry crops al a percentaqe ratio of 75 : 25. The experience of, A dh pe v Pry =~
the Mindanao Baplist Rural Lile Centre in Bansalan Davao dele! re Wy ry aie
Sur, shows lhat this lechnology can help reduce soil erosion by Muy ry,
four times, increases com yield by live times and income by six — Renate
=; 1
SALT-1. Sa ee UD, faheyy
Salt is a simple, applicable, low cost and timely method of farming the uplands. This
technology was developed for farmers with few tools, small capital and little learning in agri-
culture. A farmer can integrate his traditional farming practices in the SALT system.
ee
~
ry!
Loy
If farmers leave the SALT farm like some tribal groups do, the nitrogen-fixing trees
(NF Ts) will continue to grow and overshadow the crop area. By the time the land is reverted
to cultivation, the soil has already been enriched by the large amount of leaves fromthe NFTs
and there is no erosion to contend with. In addition, the trees may be harvested for firewood
or charcoal as additional source of income. Findings of MBRLC show that a hectare of SALT
farm can.provide an income of P1,300/ha/mo as against the P200/ha/mo in hillside farms of
corn cultivated the traditional way.
Here’s how to put SALT-1 in your hillyland :
STEP 1: LOCATE AND DEVELOP CONTOUR
LINES. After you have found and marked the con-
tour lines, plow and harrow them ready for plant-
ing. The width of each contour line to be prepared
should be one meter.
STEP 2 : PLANT CONTOUR LINES WITH LEGU-
MINOUS SHRUBS AND TREES. On each contour
line, make two furrows one-half meter apart. Plant
at least 2-3 seeds per hill at a distance of one-
fourth inch between hills. Cover the seeds firmly
with soil. Examples of NFTs are Flamengia
congesta, Gliricidia sepium (madre de cacao or
kakawate), Leucaena diversifolia (acid-tolerant
ipil-ipil}, and the Desmodium (rensonii).
STEP 3: CULTIVATEAND PLANT THE STRIPS
ALTERNATELY. The space of land between the
thick rows of NFTs where the crops are planted is
called a strip. If you wish to prepare the soil for
planting before the nitrogen-fixing trees are fully
grown, do it alternately, on strips 2, 4, 6, 8 and so
on. Alternate cultivation will prevent erosion be-
cause the unplowed strips will hold the soil in
place.
STEP 4 : PLANT LONG-TERM CROPS ON EV-
ERY THIRD STRIP AND LAND BORDERS. Perna-
nent crops may be planted at the same time the
seeds of NFTs are sown. Only the spots for piant-
ing are cleared and dug; later, only ring weeding is
employed until the NFTs are large enough to hold
the soil so full cultivation can begin.
STEP 5 : PLANT SHORT-TERM CROPS ON
EVERY FIRST AND SECOND STRIP. You can
plant short and medium-term crops between strips
of permanent crops as a source of food and regu-
lar income while waiting for the permanent crops
to bear fruits. Suggested short- and medium-term
crops are pineapple, ginger, gabi, castor, bean,
camote, peanut, mung bean, melon, sorghum, com,
upland rice, etc. To avoid shading, short plants are
planted away from the tall ones.
( 72 )
STEP 6 : TRIM THE CONTOUR HEDGEROWS
REGULARLY. About once a month or when they
begin to shade your crops, the continuously grow-
ing NFTs are cut downto 1 m. Cutleaves and twigs
are always piled at the base of the crops. They
serve as an excellent organic fertilizer. This way,
only a minima! amount of commercial fertilizer
(about 1/4 of the total fertilizer requirements) can
be used if you so desire. Gradually decrease the
use of commercial fertilizer if your crops already
look healthy and productive.
STEP 7 : ROTATE YOUR FOOD AND CASH
CROPS. A good way of crop rotation is to plant
grains (corn, upland rice, sorghum, etc.), tubers
(camote, cassava, gabi, etc.) and other crops
(pineapple, castor, bean, etc.) on strips where Jeg-
umes (mung bean, bush sitao, peanut, etc.) were
previously planted and vice versa. This practice
will help maintain the fertility and good condition
of your soil. Other management practices in crop
growing like weeding and pest and insect control,
should be done regularly.
STEP 8 : MAINTAIN YOUR SALT-1 FARM. Apart
ree from providing you with adequate food and suffi-
ae 7 yo. cient income, an even more important benefit of
(Yovent f "3 : using SALT is the control of soil erosion. This is
GROUN af" done by the double thick rows of NFTs and the
: natural terraces being formed along the contour
lines of the hill. As you go on farming the sloping
land, keep gathering and piling up straw, stalks,
twigs, branches, leaves, rocks and stones at the
base of the rows of NFTs. By doing this regularly,
you can build strong, permanent, naturally green
and beautiful terraces which will reliably anchor
your precious soil in its right place.
4,
4
Agroforestry Technology Information Kit
(DENR/IRR/FF)
SIMPLE
AGRO-LIVESTOCK =—-2@=5S
TECHNOLOGY (SALT-2) mii) ii
aes Suess PUOIE Byrd) e. ye waver i respi Fe
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wees
Ye
SALT- a iS a goat- aren eins cans a sie use of 40%
for agriculture, 20% of forestry and 40% for Ivestock Expert-
ences of the Mindanao Baptist Rural Life Centre in Bansalan, >
Davao del Sur, tend to show that this technology can minimize aie ‘Fe
erosion, improve soil fertility and provide a regular decent in- a Sel Zs
come in all upland family. This information material will guide ee
on how to establish SALT-2. Bored erin 8:
Among others, the uplander badly needs food, wood and animal products, like meat and
milk. SALT-2 is an agro-silvi-pastural scheme that attempts to meet these needs with focus on
goat-raising. Although a goat is small, it can produce as much as two liters of milk everyday if
it is purebred and its nutritional requirements are met. No wonder the goat is called “a poor
man’s cow". Here is how to put up SALT-2 in your small farm.
STEP 1 : LOCATE AND DEVELOP THE CON-
TOUR LINES
STEP 2 : ESTABLISH YOUR HEDGEROWS.
Cultivate the contour fines thoroughly, forming
raised beds, about 1 m wide. Make two furrows
spaced 1/2 m apart on each contour line. Plant
thickly your nitrogen-fixing multipurpose tree and
shrub species (NF-MPTSS) on the furrows. Plant
NF-MPTSS also on the uppermost part and along
the borders of your land. Apart from conserving
the soil, they will provide additional forage.
( 74 )
STEP 3 : PLANT FOOD AND CASH CROPS.
erie Grow your food and cash crops on the upper half
ach, “h SHORT TERM «| of the farm so that loosened soil due to cultivation
a = is caught at the lower half by the forage crops. To
avoid further disturbance of the soil, plant 3/4 of
the agricultural area to long-term crops and the
remaining 1/4 to short-term ones.
nN
UPPER PORTION OF FARM , 1-Sitry
Ms
STEP 4 : DEVELOP YOUR FORAGE GARDEN. A
project with 12 does and a buck needs a total land
area of about 3/4 hectare. Half of the area is de-
voted to forage crops and this need to be estab-
lished 6-8 months before bringing in the goats.
Plant only palatable, proteinous, fast-coppicing
and high-yielding forage crops. A suggested com-
position of forage crops is 50% Desmodium ren-
sonii, 25% Flamengia congesta, 20% Gliricidia
sepium and 5% napier and other grasses. Establish
them at the beginning of the rainy season in rows
of 1/2 m at 1/2 ft distance between hills with 1-2
piants/hill.
=| STEP 5 : LOCATE THE GOAT BARN. Build the
barn at the middie of the farm between the bound-
ary of the forage and foodcrops. This will save
r| tirne and labour in hauling manure out to the farm
and in carrying forage to your goats. Provide
floor space of 20-25 sq. ft./goat using local materi-
als. For convenient manure removal, the floor is
raised about 4 ft above the ground with floor slots
nailed, 1/2 inch apart. Essential divisions and fix-
tures in your goat house are kids’ separation pen,
milking stanchion, milkroom, storeroom, feed
trough, grass rack, waterer and salt trough.
YY ff, WLM
ggg ‘
LL
( 75 )
STEP 6 : BRINGIN THE STOCK AT THE RIGHT
TIME. Do this only when your forage garden has
been fully csiamisned and you af@ corain it is
already capable of supplying sufficient feeds. This
should be about 6-8 months after planting your
forage crops. The recommended breeds are either
the purebreds, crossbreds or upgrades ot Nubian,
Alpine andLa Mancha. Without these breeds, start
with the biggest and healthiest goat you can i: =»
Agood stocking rate is 1 buck :.12 does per 1/2-3/
4 hectare of a well-developed agroferest farm.
STEP 7 : FEED THE GOATS SUFFICIENTLY.
Your goats essentially need concentrates (high-
energy feeds) and forage (high- fibre feeds) daily.
A milking doe weighing about 50 kg and giving 1
liter of milk a day needs 1 kg of concentrate and 5
kg of forage per day. Give the feeds inthe morning
and in the afternoon. A good concentrate consists
of 18% first class rice bran, 23% corn grain or rice
middlings, 21% copra meal, 36% ipil-ipil leaf meal,
1% salt, and 1% limestone. A good forage is a
mixture of 50% D. rensonii, 25% Flamengia, 20%
Gliricidia, and 5% napier and other grasses. Pro-
vide your goats with salt and plenty of fresh water
daily.
STEP 8 : BREED THE GOATS. Earlier breeding
will stunt the animal. A doe should not be bred until
she weighs 45-50 kg or is about 10-12 months of
age. It is best to breed the doe in the second day
of the heat period because conception ts usually
more successful at this time. If it does not become
pregnant after being bred over three heat peri-
ods, cull it or place tt under close observation if it
is avaluable breeding animal.
STEP 9 : MARKET YOUR PRODUCTS WISELY.
Do not delay marketing your agriculture, forestry
and livestock products. Milk your goats dally,
pasteurize the. milk and dispose it immediately.
‘Goats are to be marketed at the age of 10-12
months or when weighing from 35-55 kg.
( 76 )
STEP 10 : MAINTAIN THE FARM REGULARLY.
Cut your hedgerows 1/2-1 m fromthe ground when
they begin to shade the field crops. Replant miss-
ing: hills of the hedgerows, weed and clean the
crops and spray with chemicals only if necessary.
Deworming of goats, hoof trimming, disbudding,
castration and spreading manure to the farm for
fertilizer are some of the necessary routine prac-
lices to be done in the SALT-2 farm.
o- a \
aon “4 ee
5 Va TRIMMED
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Lo
ern ae TREE RING
PORAGIN|
OINTMENT
CUT TIPBORE BORE
= HOLE TO FIT YENT
AROUND HORN BUD
TATTOOING OR EAR a le OR EAR an DISBUD Ricee HORNED KIDS
CASTRATE EXTRA MALE ‘by TRIM HOOFS EVERY MONTH
A = / enone ee
a (3) + 7 Z | on,
[
|
t
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HOOF
(1) HOLD
aa) 4) PULL OUT (5) te
DEWORM EVERY 3 MONTHS
TRIMMER
CLEAN Vl ZU
CLEAN waren ) = e
\i?
AND FEED RACK : All
DRENCHING BOTTLE
“OR SYRINGE
WITHOUT NEEDLE
JUST LIFT THE HEAD
SLIGHTLY TO ENSURE
MEDICINE ENTERS THE
STOMACH NOT IN LUNGS
BACKWALL
RECYCLE
MANURE TO FARM REGULARLY
Agroforestry Technology Information Kit
(DENR/IRR/FF)
SUSTAINABLE
AGROFOREST LAND SR
TECHNOLOGY (SALT-3) aie ie
i
yt fi maak
Sprit i a ARS
Ph my PNG HEN we
if LAM ayy" Wi 4 i SS
| Wee FN 4, SPS sees
SALT-3 is a scail scale een integrated with food >
production. The farm 1s devoted to about 40% agniculture and aa oo
60% forestry. This “food-wood" intercropping as designed in the i i iis
Mindanao Baptist Rural Lile Centre in Bansalan, Davao del oUF, I Wi Mt
shows that it can effectively conserve the soil, thereoy providing || Na i
abindant food, wood and income to the hillyland farmer. This all I) eu i hi iy fae Nh
a,
CORN
formation material will guide you on how to establish SALT-3. ins at
7
Deforestation, soil erosion and inappropriate farming technologies are the three major
causes of low farm productivity, thus the manifold poverty in the uplands. Agroforestry is
fast becoming one of the sustainable alternatives to sufficient food production and income
generation for the uplands. SALT-3 is a variant of agroforestry and here is how to put it upin
your hillyland.
STEP 1 : SET UP THE AGROFORESTRY NURS-
ERY. Ensure sufficient supply of planting materi-
als for your agroforest farm by setting up your
own nursery. A nursery of about 10° x 25° can
sufficiently meet the needs of a 2-hectare agro-
forest farm.
Establish your nursery where it is accessible,
with the following fixtures : potting shed, trans-
plant shed, seedbeds, etc. Basic equipments like
sprinklers, shovel, spade should also be available.
( 78 )
STEP 2 : CARE AND MANAGE YOUR SEED-
LINGS. For better growth and field survival, the
production of healthy and vigorous planting
stock is necessary.
@ Sow the seeds. Most forest tree seeds are
hard to germinate so they need scarification
either by mechanical or hot water treatment.
The most common problem encountered in
seed germination is damping off and insect
defoliators. Sterilize the soil before sowing
the seeds to avoid damping off. Use chemicals
when necessary.
The seedbeds ortransplant beds must be kept
moist at all times. Mulch and shade the plants.
@ Transplant. Prune the roots of species that
can be outplanted bare root (mahogany, teak,
etc.). Do not allow weeds to compete with your
transplant. Fertilizer may be applied in con-
junction with watering long before transplant-
ing. Dissolve complete fertilizer (14-14-14 or
15-15-15) at the rate of 10 g/li water.
Harden off seedlings by gradually exposing them to more adverse conditions obtaining
in the field. Do this 3-6 months before transplanting. Seedlings ready to be planted should
have sturdy, well-developed crowns and many fine, fibrous lateral roots.
STEP 3 : ESTABLISH YOUR FOOD CROPS ON
THE LOWER HALF OF THE FARM. Plant your
preferred short-term crops, on every first and
second strips. A strip is a 4-5 m alley created be-
tween contour hedgerows. Depending on their
Suitability to your farm, plant long-term crops like
citrus, coffee, cacao, banana, black pepper, etc.
on every third strip. Then intercrop them with fruit
trees, like rambutan, durian, lanzones, guava, si-
niguelas, duhat, etc. following appropriate plant-
ing distances.
The earlier you establish your food and cash
crops, the better off you will be in meeting your
immediate needs.
( 79 )
Follow SALT-1 steps in establishing your food
crops.
STEP 4 : PREPARE THE SLOPE FOR YOUR
WOOD CROPS. Locate the woodiot at the upper
half of the project so that the agricultural compo-
nent on the lower portion will benefit from the
conserved moisture and nutriants from the wood
crops.
On areas.with steep slope and with erodible
soil, extra care must be exercised so as not to
induce soil erosion when clearing the area. You
canuse either partial or complete removal of vege-
tation whichever is more favorable to you. Avoid
burning.
STEP 5 : COMPARTMENTALIZE AND SPACE YOUR WOOD CROPS. Fora 3-fold objective
of soil rehabilttation, firewood production and timber growing, you Can maximize the use of
land space by following the high density strategy of establishing small-scale woodlots.
As jointly designed by representative foresters, agriculturists, farmers and countryside
developers consulted by MBRLC in developing SALT-3 (2-hectares), the following were
recommended :
= ie
eS 4 de, (\ Wi ls
o un 0 oP cB epge-— me —
B :
.Y \
MAHOGANY SESBAN
vee ANN nh
SA
an
bie »e
ia Y c
ssn | Smale eis
AN INTERCROPPING LAY OUT OF SAMANEA AN INTERCROPPING LAY OUT OF
SAMAN AND RAT TAN MAHOGANY OR NARRAAND
S.SESBAN
Cle,
(AINTERCROPPED |p partan | y
( 80 )
SPACING
INITIAL | FINAL DURATION
COMPONENT ON
TOP-DOWN SEQUENCE HECTARE
|
Rain tree (S. saman) 1/4 1x1im 8x8m . Long term
| (15-25 years)
2 Rattan (C. merilli)as inintercrop: 1/4 8x8m 8x8m : Longterm
|
with rain tree
Narra (P. indicus) 1/8 2x2m 4x4m —— Longterm
Katuray (S. sesoan) as intercrop 1/4 1x1m 1x1im Short term
with narra and mahogany (1-5 years)
Mahogany (S. macrophylla) 1/8 2x2m 4x4m Longterm
1/16 exem 2x2m ‘i Medumterm
(6-14 years)
ems =o me
A. auriculiforais
7. A mangum 1/16 2x2m 4x4m Medium term
me ee
P. dulce & formosa mixed 1/8 1xim 1x1m_; Short term
eer 1/4
1x1m 1x1m °' Shortterm
10. Bamboo (botany variety) on border 8m ' 8m Longterm
between| between
hills hills !
11. Hedgerows or agriculture 1/4 46m Long term
component apart ee
STEP 6: OUTPLANT THE TREES. This canbe
Started as early as the beginning or up to the
middle of the rainy season so that seedlings can
get established prior to the dry season.
You can also follow the contour when out-
planting although it is not so imperative. Take care
not to break the earth-bail when setting the seed-
ling into the planting hole. The upper part of the
earth-ball should be level or slightly deeper than
the edge of the hole. Soil is filled into the spaces
and tamped firmly all around.
( 81 )
For fast recovery of the seedlings in degraded sites apply basal application of 50-100 g
of complete fertilizer (14-14-14) mixed withurea (46-0-0) at 50: 50 ratio. Mulch your seedlings
to insure higher linability.
Vp C8 Lie STEP 7 : INTERCROP YOUR TREE CROPS.
dle a Short- and medium-term food and cash crops can
be interplanted in your forestry component during
the first 2 years. Long-term ones like black pepper
and rattan can be incorporated at the beginning
pn a oy : of the second year. You can even raise poultry
Y (goose, turkey, muscovy) and small livestock (pref-
Wt, ae Ho \s erably sheep) underneath the tree crops dunng
the following years.
a oS
ey vy
For effective soil management, see to it that
non-legume short-term crops are replaced by fe-
guminous ones and vice versa in every cropping.
STEP 8: DO TREE STAND IMPROVEMENT. Apart
from regular ring-weeding and liberation cutting,
improve the stand of your trees. Remove the mal-
formed trees. Replant the missing hills if you feel
the replanted trees can still catch up.
However, replanting is laborious and expen-
sive and should be done only to maintain required
spacing or density. This is also performed when
mortality is more than 30%.
STEP 9 : HARVEST YOUR AGROFOREST
PRODUCTS REGULARLY. Timely harvesting of
crops saves waste, All households and useful
products must be gathered, processed and mar-
keted. In the forestry components -- forage from
tree prunings, fuelwood and roundwood from thin-
nings commence during the second yéar. Thin out
regularly your forestry area until the timber crop
spacing requirement is complied with.
| iy =
|
Kt
a
My
( 82 )
Here is a suggested schedule of harvesting your forest trees, patterned alter the
MBLRC plan.
YEAR } SPECIES HARVESTING USE
None
Seshania sesban
S. sesban
Leucaena diversifolia
Samanea saman
Pithecelobium dulce
Mahogany
Narra
Acacia mangium
A. aunculiformis
Bamboo
Rattan
A. auriculiformis
A mangum
Narra, mahogany
Rattan
Narra, mahogany
S. saman
METHOD
Selective
All-out
All-out
All-out
Selective
Selective
’ Selective
Selective
Selective
Selective
Selective
Selective
All-out
All-out
Selective
Selective
All-out
All-out
Fuelwood/charcoal
leaves for feeds, etc.
Fuelwood and light
construction, etc.
Light construction
furniture, etc.
Fuelwood and light
construction, etc.
Timber and furniture
APPENDIX 7
VANSDA—A UNIQUE MODEL OF TRIBAL
REHABILITATION
The Vansda Model of Tribal Rehabilitation has not only given a new
direction for thought and action, but has also held out the promise of its
possible replication in other parts of the country. Experience gained at
Vansda has clearly shown that the deprived, the dispossessed, the
landless and the jobless, whose number is legion, want to be and need
to be rehabiljtated in their own natural environment and are anxious to be
able to make a decent living onthe strength of natural resources within
their vicinity and within their reach,
Dr. Manibhai Desai
President, BAIF
THE BHARATIYA AGRO INDUSTRIES FOUNDATION
Kamdhenu, Senapati Bapat Marg.
Pune-411016, Maharashtra, India
Telephone : 52621/22/23, Telex : 0145-283
Telegram : BAIFON
“Adivasis’’ (the tribals) are the earliest inhabitants of the land.
However, in most places, the march of progress has left them far behind.
Tribals in India have long been victims of exploitation, poverty, disease and
ignorance.
The Setting
Vansda Block in Valsad District of Gujarat is a predominantly tribal
area characterized by an undulating hilly terrain and heavy seasonal
rainfall. The tribal families have either small holdings of land or are landless.
They mostly cultivate one rainfed crop, and after harvest there are no
opportunities for gainful activity. Survival has become a hand-to-mouth
struggle, a clash between ecology and existence. Large number of adivasi
families have to migrate seasonally after every monsoon to nearby towns in
search of work. It is a vicious cycle. Faced with a meaningless life, the
tribals take to drink not for pleasure, but to forget. It is against this setting,
that in 1982, BAIF initiated a programme for tribal rehabilitation.
( 84 )
Programme Approach
BAIF believes in working for the development of the rural poor
through establishing a meaningful and rewarding relationship between the
five basic resources-Land. Water, Vegetation, Livestock, and MAN. BAIF is
committed to use Science and Technology to help improve livelihood and
the socioeconomic status of the rural poor. Fully aware that if the tribal
families continued to consume liquor, these very aims and objectives would
be defeated, BAIF made it very clear that giving up drink and working hard
are the two pre-requisites for joining the programme.
Salient Features of BAIF’s Approach
« Operating with the family as a unit.
# Establishing a strong rapport with the participating families.
« Developing confidence in the tribals about their own capabilities and
skills.
« Providing strong techno-managerial inputs.
« Strong bias on activities for the welfare of women and children.
The Start
The beginning was slow and hesitant. Only 42 families joined the
programme initially. The others waited and watched. When they saw that
the participating families were not only developing their own assets in the
form of fruit and forestry plantations, but also received wage support, so
that they had no more need to migrate, the initial hesitation and scepticism
thawed. The number of participating families crossed 5000 in about five
years.
Programme Components
Set upon the task of converting wastelands into orchards, each
family works on one acre of land. For those, who are landless, the Govern-
ment has alloted one acre of wasteland on usufruct basis. The wastelands
are surveyed and a land treatment plan is prepared.
( 85 )
On each plot of land, the tribal family works throughout the year
to take up measures such as land shaping, contour marking, bunding,
terracing, livehedge fencing, digging plots, plantation of trees, aftercare and
soon. Fruit trees like mangoes, guava, papaya are planted in each WADI
(orchard). Subabul, Eucalyptus, Casuarina and Bamboo are also planted to
provide fuel, fodder and timber, Vegetables are cultivated as intercrops. Each
tribal family is now developing a wadi full of fruits and forest trees and
intercrops. The entire wasteland is being transformed into a productive
orchard.
‘A’ Frame
The A frame is a simple device made of three bamboo poles shaped
like an “A” and is used to mark contours on the hill slopes with remarkable
speed and ease. Tribal youth are trained in assembling and using the A
frame. These ‘barefoot technicians’ then move from plot to plot marking
contours. It is an instance of introducing appropriate technology and
teaching the unlettered tribals to use it effectively.
Water is the lifeline of such a programme. Acute scarcity of water
during summer led to a novel system to harvest runoff water after monsoon.
The streams (na//ahs) are plugged by temporary check bunds erected by
using old gunny bags filled with sand or silt. This low cost technique is
labour intensive, speedy and simple. Thus, water pondages are created all
along the nallahs, providing life saving water for critical irrigation.
fand surveys were followed by design and installation of decentra-
lised small scale lift irrigation schemes in large numbers. A pumpset was
installed at every check bund, and pipelines were laid. The water flowing in
the nallahs was thus carried to each plot being developed by the tribals.
Simultaneously, a scheme for providing drinking water through borewells
was initiated in each village.
Wavli
‘Wav/j' is a typical tribal custom under which the income earned by
the women is retained by them and men have no claim to it. BAIF identified
wavij as the most potent intervention to involve women and ensure them
( 86 )
a steady income. The task of raising nurseries was therefore entrusted to
women. They were helped in procuring polythene bags and seeds and
trained in all aspects of nursery raising. This programme not only provides
thousands of seedlings for future plantations, but also income for the
women. Cultivation of vegetables has also become an important Wav/i
activity. Alongwith additional income from vegetable sale, it helps in an
improved diet. A_ significant feature of the programme is extensive
use of handpumps and borewells for raising nurseries and vegetables.
Mango Grafting
The backbone of the programme is horticulture. Plantation of graft
varieties of mangoes had to face the bottlenecks of unavailability of large
number of grafted saplings, high price, costly transportation etc. A group of
tribal youth was trained in the technique of stone grafting and softwood
grafting. Each group of 20 tribal families selects one young boy who
is trained in this technique. This has slashed the costs of mango grafts to
just ten percent of the market price.
Health Programme
The health programme at Vansda was launched with the objective
of providing primary health care servicen, especially to children and mothers.
Various programme components include vaccination of children, growth
monitoring, antenatal care, provision of good quality drinking water, health
education, etc.
Community health workers have been trained in delivery of primary
health care. They are responsible for recording health information and
disease incidence in their own villages. They are supported by a mobile
health team consisting of a doctor and paramedica! staff. Training of village
midwives and village women is an important part of the programme.
Ayojan Samiti
An “Ayojan Samiti’’-the planning committee-has been formed of
one man and one woman representative for every 20 families. The members
of the Ayojan Samiti meet every month to plan and monitor the programme
( 87 )
at each stage. This helps the tribals to take initiative and solve problems at
the local level.
The Impact
Vansda is blooming. The wadis are full of lush green trees and
vegetables. There is prosperity and happiness.
The tribal poor have shown that given an opportunity to improve
their living condition and economic status, they can work hard and stay
clear of self-destroying addictions. Vansda was once a wasteland. The
programme was aimed at two goals: of providing year round gainful self-
employment and putting a stop to migration. Forest trees, fruit trees. and
food crops make a three tier cropping system, the result of which has been
bountiful. The main objective was not merely to provide sustainable
livelihood, but to ensure an improved quality of life blended with a sound
value system,
The tribal communities have evolved a way of life, which on one hand
is woven around forest ecology and forest resources and on the other,
ensures that forests are protected against depradation by man. and nature.
The loca! tribal communities thus have a symbiotic relationship with forests.
A wise use of this life style through such a rehabilitation programme will
help achieve total development through simultaneous development of
forests and wastelands.
Today, Vansda has become the symbol of a new awakening. The
success of this unique and bold experiment has thrown up interesting
possibilities of extension of this programme to other parts of the country.
Vansda symbolises BAIF’s unique model of tribal rehabilitation.
APPENDIX 8
PEOPLE AT THE CENTRE OF THE STAGE
PANCHASHILA OF PEOPLE’S DEVELOPMENT
1. People at the Centre of the Stage :
If there is anything we can learn from earlier efforts to find alternat-
ives to shifting cultivation, it is that nobody else, however qualified and
powerful, can make decisions ‘for’ the people and expect the latter to
to implement them. The shifting cultivators themselves must be the centre
stage actors in the changes that are being visualised.
(a) In their case, one deals with decisions where the acceptability of the
decision is far more important than the technical quality, though the fatter
must, of course. be given attention also.
All other agencies, that have a role to play in the development of
the alternatives, including the administration, the Forest Department, the
NGOs are only enablers. These agencies can create at macro and micro
level, the structures and climate, legal, administrative, financial, technical
and human which facilitate appropriate decision making by the shifting
cultivators, or at Jeast avoid creating obstructions to the process,
(b) What is by all means to be avoided, is to make people feel bad or guilty
about shifting cultivation, because this only arouses their defences, and
condemns the programme to certain failure. It will also create a wrong
‘social contract or understanding’ between the shifting cultivators and the
enabling agencies. Besides, it would be unfair and unjust towards them.
For centuries, shifting cultivation has proved to be a sustainable and
viable manner of combining agriculture and forestry, ecological balance was
maintained. It was only when larger forces, eSpecially increase jn
population, beyond the comprehension of tribal people began to impinge
on the forests, that the system lost its balance. The problem was not of
their making.
Shifting cultivation forms the core of the culture of many tribes,
including their religious beliefs. To attack the practice directly would create
( 89 )
serious problems in the tribal psyche. Words like anti-podu and others
which carry negative connotations, must be avoided,
The remark of Verrier Elwin in a Philosophy for NEFA, still carries
relevance :
“The correct approach to the problem of shifting cultivation lies in
accepting it not as a necessary evil, but recognising it as a way of
life; not condemning it as an evil practice, but regarding it as a
cultural practice evolved as it reflects the physiological character of
the land. For too long shifting cultivation has been condemned out
of hand as a curse to be ashamed of.... This attitude endangers an
inferiority complex and an unhealthy atmosphere for launching of
any development scheme to improve the present practices”.
(c) This involves that one should not aim for a total replacement of
shifting cultivation, but permit its practise on a restricted area of village
territory, so as to meet the symbolical, cultural, religious and culinary needs
of a people’s ethnic identity.
2. The Panchashila of People’s Empowerement & Action :
If one takes seriously what has just been affirmed, i. e. that the
shifting cultivators themselves have to be the centre stage actors in the
process of change, and make decisions, because it wil! be their risk, their
rewards, their pride, one cannot immediately introduce alternatives to shifting
cultivation, however appropriate these may be in the eyes of the agencies,
including the catalytic agent, in this case the NGO. The shifting cultivators
have to go through a process of preparation, faster or slower, according to
the circumstances.
This is called the panchashila of people’s development and consists
of five steps interconnected, though the sequence in which they take place,
can be altered. The five steps are:
* People’s Awakening
« Education
« Organisation
( 90 )
« Empowerement
*« Action
People’s action comes logically only as the fifth step. One might feel
impatient at this, and adopt a crash programme approach. Experience in
tribal areas, however, demonstrates that where one allows enough time for
the panchashila to work as a leaven, there subsequent adoption to change is
easier, and free from difficulties that crash programmes usually bring along.
A word on each of the five steps :
(a) PEOPLE’S AWAKENING: The shifting cultivators are already aware
that theirs is a loosing battle if they persist in shifting cultivation only. What
needs to be done is to awaken them to the alternatives that are viable, and
to the possibility of containing podu to a great extent. The most important
factor, perhaps, is that they have hope in the future and self-confidence
that they can reach somewhere.
Since most groups have already taken to alternatives, there is a
possibility for promoting horizontal learning. In this approach, people are
not told something from above, but acquire new knowledge and awareness
by visiting neighbouring groups, who have already gone ahead in the
transition. Representatives of groups can be taken to neighbouring districts
within that state, in order to talk with shifting cultivators, who had adopted
horticulture, terrace cultivation, other innovations and see for themselves.
Participatory appraisal for rural development, a new method to enable
villagers to share their own knowledge, seems also to offer considerable
possibilities for awakening, education and planning, in fact in the whole
panchashila which is discussed here. It is being promoted by MYRADA,
Bangalore, and Robert Chambers, at present at ASCI. Hyderabad.
Melas and yatras where large numbers of people hear messages of
alternatives to shifting cultivation, street plays, are good also. If an
opportunity is given for representatives of groups to speak in public in their
own tribal/regional Janguage, eg. Kui in Phulbani district, the message of
containing podu and restoring forests to health will get across more easily.
There are hills in Orissa where years ago, one village has stopped podu and
-( 91 )
has protected the regenerating forest, while the neighbouring village has
carried on and has omy barren land to show. The difference is there to see.
However, it is only:when within a Jarger context one village talks to
another, that positive results and breakthroughs can be expected.
Awakening is a first step, and has in most cases already started. It
should not make people feel guilty, but confident that if they do something
~ together, they can achieve their goal. Let the unit be the same watershed, or
-ea hill slope, because groups depend very much on what others are doing.
The basic «unit of the awakening process is the settlement of households
living in close proximity with one another.
- Awakening is then an unfreezing process, of deeply encrusted views
and convictions. It can never be stopped, but must go on indefinitely.
« (b) PEOPLE’S EDUCATION : In this step groups who have grown in
consciousness are provided with information on what alternatives are
available and could be tried out. This ‘education’ is closely related with
awakening, of course. The spoken word, especially when uttered in a
panchayat, by individuals whom people trust, has more effect than any
audio-visual! means. The spoken word can easily be supplemented with
audio-visuals, but the latter may easily distract tribal groups as entertain-
ment, rather then education.
The education we speak of here is, of course, non-formal. What
people learn from each other. Very essential is the wavelength on which the
animator or speaker is with the particular group, whether he or she adopts a
negative looking-down-upon attitude, or radiates good will, belief in people
and commitment, to what he or she says. Participatory appraisal for Rural
Development (PARD) has an important role to play in Education.
Education will have to be carried on beyond these initial steps, podu
chasa groups have to continue to be supplied with information on
alternatives, but also about health, nutrition, market prices, use of compost,
fruits that can be grown, irrigation, rearing of animals.
\t order to raise the productivity of land being used by ex-shifting
cultivators, in such a manner that the land yields enough for a sustainable
( 92 )
rural economy, technical education will have te be provided. This could be
done in the form of extension programme by young men and women
trained in village forest training centres (VFTC) run by NGOs in Orissa.
Ordinary villagers, men and women, also could be deputed for one week
exposure courses in such centres, eg. for inputs on bee keeping, poultry,
leaf plate making, mushroom cultivation, etc.
To do justice to its educational task, the sponsoring agency will need
some field workers who have acquired sound basic knowledge on the
alternatives that are technically possible, and on innovations that are taking
place in the field of agriculture.
(c) PEOPLE’S ORGANISATION : This would refer to the Village Forest
Protection Committees of which already hundreds exist in Orissa, whether
formally recognised or not. Such organisations are close to the traditional
way in which tribal society has organised itself to cope with problems.
Such committees should operate first of all at primary settlement level, i.e.
the people who have practised podu in a specific area of forest. Such
committees can be federated into a local federation covering a watershed,
or hillslope, so that differences can be amicably settled, or contractors and
persons from outside who come and disturb the existing arrangements, can
be dealt with.
-How these committees are constituted should be left to the people,
rather than prescribed from above. The village forest committee appointed
by the Government under the Social Forestry Programme in Orissa have not
been a success because they were constituted from above. In such a case
there is a danger that members of the local elite, who are more vocal,
educated and cleverer than the common folk, soon appropriate the benefits
of organisation themselves,
A problem needing attention is how to organise women. They play a
vital role in the protection and regeneration of forests, more than men. Yet
in traditional social structures, they are by custom, expected to keep quiet.
What women can do, once their creative power is released, has been
demonstrated by the case of Bankura and other districts in West Bengal.
( 93)
(d) PEOPLE’S EMPOWEREMENT : A group cannot undertake action with
regard to its own members, disciplining for instance erring persons, or
vis-a-vis the outside world, unless it has power, the ability to influence the
behaviour of others towards a desirable end,
As has been’ proved from the case of the Village Forest
Protection Committee in West Bengal, groups must not only have informal
power, but power recognised by the State, if they are to be in a position to
protect their assets against intruders, contractors, erring fower functionaries,
Psychologically also, the feeling that one has power, is a deep
motivating drive, and lends dignity to the individual and his colleagues.
Empowerement naturally arises out of organisation, and also out of
recognition of such power, by authorities and other groups. It is then
called bargaining power.
(e) PEOPLE’S ACTION : When people have proceeded that far in the
panchashila, they are ready to take decisions and to implement actions
which will restore their environment to sustainability.
If enabling agencies have had patience till that moment, and
concrete interventions, at least major ones, are undertaken only at that
moment, such interventions will be appropriated and interiorised by the
people as their own, and executed because these are their own decisions,
not those of somebody else.
The panchashijJa should really never be stopped. Increasingly complex
challenges of management of resources, the generation of savings and
credit, other challenges demand people’s attention. Matters cannot be
entrusted to office bearers exclusively, lest the latter become negligent or
embezzle the money or cheat members in other ways. Constant watchfulness
is a necessity.
3. NGOs as Catalytic Agents
What assurance is there that NGOs in Orissa will be more effective
than other agencies, which have tried their hand earlier, and have met only
( 94 )
with partial success ? This is one point to be pondered by any NGO which
volunteers to take up the challenge.
What role do the NGOs have to play ? This is the second point.
Lastly, what conditions have to be fulfilled if an NGO is to succeed
in this task, and achieve a breakthrough towards a popular movement ?
(a) CAN NGOs DELIVER THE GOODS : Points in favour of NGOs are. :
That in podu chasa the human aspect is the most vital one, and only when
the people make their own decisions, one can expect lasting results. Many
of the shifting cultivators, however, are at a still relatively primitive level! of
culture, their experience in interacting with the outside world has not been
encouraging, and by nature they shy away from contact. In short a highly
vulnerable population. Whenever success was attained with them, it was
because of the commitment and sincerity of the anthropologists or officers,
who identified closely with them. The NGOs are better suited than official
agencies to create this type of encouraging climate with the shifting
cultivators.
In the solution suggested here, the process of development is put
upside down : people as central decision makers, all other agencies
functioning as enablers. This role is one with which most official agencies
are likely to have difficulties, as it goes against their bureaucratic nature.
For NGOs, however, this is really nothing new. NGOs have the liberty of
movement, to adjust themselves to the needs of the people, and have
greater manoeuverability than official agencies.
Finally, those NGOs in Orissa, which have already worked in the
area of alternatives to shifting cultivation, have won the confidence of the
people, and achieved relative success.
There are also doubts : While NGOs are usually at home in promoting
the panchashila of development, will they deliver the goods when it comes
to the implementation of people’s action ? Only NGOs with a certain
organisational strength, adequate staff including professionals working at
field level, a good accounting system, credibility in the eyes ef tke
( 95 )
administration, can attempt the task. Not just any NGO should rush into
this field, where angels fear to tread |
While there may be nothing wrong with the NGO itself, what assurance
is there that officials of the Government agencies whose help will have to
be enlisted, revenue, irrigation. soil conservation, forest, education, will be
more obliging than they have been towards ITDA ? Jealousy is a factor that
can boycott genuine efforts. The denial of opportunities to extract bribes,
that existed earlier may make lower functionaries non-cooperative. The
danger of obstructions by functionaries must be kept in mind.
Through a hot line approach with the highest administration in the
State, this problem can be solved at policy level. If, however, the staff of
departments operating at block level are not cooperative with the NGOs,
no power from higher up can do much about this. Only people’s power
could, but by nature, shifting cultivators are not inclined, nor do they have
the time to demonstrate in front of the office of the BDO, or the Collector,
(b) WHAT ROLE DO THE NGOs HAVE TO PLAY AS CATALYSTS &
ENABLERS
This roJe can be cut down into several tasks:
« First, there is the promotion of the panchashila which has already
been explained, and which is relatively easy for NGOs.
« Secondly, the NGO has to sit down with the shifting cultivators
and plan in detail, what can be done. Decision making has to be left to
them and can be promoted through the PARD method. In this process, the
NGOs must see to it that enough alternatives are aired, so that shifting
cultivators can make a well reasoned choice.
« The third task is interaction with Government and _ infrastructural
agencies. Initially, the people hesitate very much and need a lot of
encouragement and support ‘from the back’. The best policy is to depend
on the Government and its agencies as little as possible; The latter can
give advice and must see that its functionaries do not obstruct the work
carried out by the NGOs.
( 96 )
« A fourth task is to see that the bolts and nuts of implementation
are properly fixed, well oiled, and to remove irritants that are bound to
arise. Constant watchfulness is needed.
« A fifth is to see that the other basic services are in place, and
function, such as drinking water, education, health, income generation,
training schemes, child welfare, women development. Also the starting of a
saving-cum-credit scheme.
* A sixth task, which follows logically is to see that a proper
monitoring system, participatory in nature, of course, is put in place and
begins to function as a matter of routine. An immense effort against rural
immobility is required.
« The seventh task is to plan for withdrawal of the NGO, and
promote self-reliance of the group, within a period of, say, five years.
« A series of other tasks, looking towards the wider world, are to be
executed; such as : public relations with other agencies of the delivery
system, receiving visitors, documentation of what is happening and_ sharing
it with others, networking with other groups.
(c) CONDITIONS FOR NGOs TO SUCCEED IN THIS TASK: The role of
escorting shifting cultivators in finding alternatives involves a major
corporate commitment and should not be taken up lightly by an NGO. The
organisation will have to do the following :
« Sit down and list its organisational strengths and weaknesses and
see whether it can take up the task and do justice to it.
*» Make a corporate commitment, knowing fully well that it may
involve a time period of five years or more.
« As a follow-up to the analysis of organisational strengths and
weaknesses, remove weaknesses, such as absence of qualified staff,
improving the financial and accounting system of the organisation, bring
about a greater sharing of ideas in case there are fissiparous tendencies,
setting up a proper monitoring system, if this has not been done earlier,
( 97 )
providing training to personne! in new methods such as PARD, and in
technical aspects of agro-forestry, etc.
» Discuss the proposed programme with a group of shifting
cultivators, and come to an understanding, expressed possibly in a
memorandum of understanding, spelling out mutual responsibilities and
expectations.
In order to assure intensive interaction during the initial period, the
group of shifting cultivators may be rather small, inhabiting one area, so
that personal contact is possible. A group of 150 to 200 families, perhaps.
Later on, if the initial experiment proves successful, the message will begin
to spread by itself, and to snowball. The initial thrust should not be blunt
because it is too ambitious.
x Come to an understanding with SIDA, or other agency and enter
into a contract, covering financial matters and a system of monitoring and
reporting progress. The funds are released as fees, and not as a grant,
falling under the FCRA rules. SIDA, however, plans to conduct a few pilot
projects with selected NGOs only. If the project proves viable and more
NGOs come forward, alternative arrangements will be needed.
« Appoint a project officer, an experienced young professional to
work on a full time basis in the venture, and provide him with the means to
do justice to the task, such as transport and supporting staff. To take care
of the interests of women, a lady project officer may be needed quite early
in the project also.
Work out a cost estimate of how much it will cost to rehabilitate one
family of shifting cultivators. This is meeded to later on measure the
effectiveness of the programme. Under the ITDA, Rs. 30,000/- is provided
per family.
» Enter into relationship with NGOs in Orissa, engaged in the same
type of work, and sharing information with them, organising common
training programmes, exchanging documentation, skill, information.
( 98 )
« Originally, only three or four NGOs may be selected for under-
taking this work as pilot projects. If these first efforts succeed, more NGOs
may be given an opportunity to share in the work. Only then, can the
triggering of into a mass movement be expected. If the efforts spread, NGOs
in the district engaging in podu containment, may have to form a
consortium for interaction with the district administration, banks, and
infrastructural agencies.
APPENDIX 9
COORDINATION BETWEEN AGENCIES
A variety of enabling agencies, have to coordinate, and provide inputs
for the success of the programme. Coordination is absolutely vital. This has
to take place at three levels : local/agency level, district level and state
level.
1. Locat/Agency Level
The project officer placed by the NGO as animator of a project is the
primary coordinator. It is his task to see that inputs from official, non-official
agencies, needed for the project, are provided at block level. He interacts on
almost daily basis with the local DFO or Ranger of the Forest Department,
and also with the BDO.
He or the NGOs office keeps up correspondence with the local
agencies, and maintains documentation including an account of day-to-day
progress.
If he encounters difficulties, he informs the NGO to which he
belongs. and the fatter can, if need be, contact the Collector, or other
relevant authority for the speedy removal of snags and irritants.
As a matter of routine, a monthly coordinating meeting must be held
at block level with representatives of all infrastructural agencies, also banks,
to review the progress of the work. The BDO can be asked to preside at this
meeting. Minutes are kept by the project officer or the leader of the
escorting NGO.
At local agency level, coordination deals primarily with activities, and
day-to-day problems of administration. It’s the locus where real action takes
place and results must show.
2. District Level
A similar process takes place at district level, but in this case the
initiative and driving force behind coordination is the leader of the NGO,
which does the escorting. He interacts with the DFO, with the Collector,
with district heads and infrastructural agencies, and if need be, also with
( 100 )
other NGOs working in the district and who can provide assistance, for
instance in training.
A monthly rhythm of meetings can be established as a routine. The
leader of the NGO functions as secretary of the consortium. The Collector
functions as the Chairperson. If the latteris absent, however, the meeting
is not postponed, but another member functions as chairperson.
The monthly progress of the project is reviewed on the basis of
documentation from the field. The project officer should also attend this
meeting. Minutes are kept of these meetings, and circulated as soon as
possible amongst the participant agencies.
At district level, good coordination will concentrate on the building
up of sound policies of implementation.
3. State Level
At highest level SIDA, or other donor agency, takes the initiative of
coordinating with highest state officials, especially those of Forest
Department.
Meetings are held on the occasion of routine consultations and
reviews twice a year. They are meant to review the progress of the scheme
on the basis of monthly reports sent from the NGOs and from the field
projects. The leaders of the NGOs escorting projects, are invited to these
meetings.
Such coordination meetings must remove major obstacles from the
implementation of the projects, declde on broad strategies, and develop
policy at state level.
The Coordinator of SIDA functions as secretary of such meetings.
The Chief Secretary, Additional Chief Secretary or another senior govern-
ment official functions as Chairman. Minutes are kept of the meetings and
are circulated among relevant departments and also to the district level
officers.
lf meetings of this coordination system at three levels, are held at
regular intervals, the monitoring needs of the project will be taken care of
as well.
)
( 101
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