I P P 7 rTr7ribal Developmient Strategy ANDHRA PRADESH COMMUNITY FOREST MANAGEMENT PROJECT TRIBAL DEVELOPMENT STRATEGY AND ACTION PLAN 1. About the Project 1.1 The Government of Andhra Pradesh has formulated a new approach to forestry involving participation of the forest dependent communities. This Community Forest Management approach is a radical shift from traditional estate forestry. The Government of Andhra Pradesh has approached the World Bank for financial assistance to implement this approach in 14 districts (Adilabad, Khammam, Warangal, Karimnagar, Nizamabad, Medak, Mahabubnagar, Srikakulam, Vizianagaram, Visakhapatnam, East Godavari, Nellore, Chittoor and Cuddapah) in 5000 selected villages with high poverty incidence distributed in the forested northern, coastal and southern belts of the state. The Project aims to consolidate and expand the benefits of the Joint Forest Management implemented involving local forest communities through Vana Samrakshana Samithies (VSS). Under the present project (Andhra Pradesh Community Forest Management Project), VSS participation is estimated to benefit approximately 326 000 households, or about 1.8 million people. Tribal communities, recognized as Scheduled Tribes (ST) overwhelmingly constitute the 5000 VSS villages targeted under the project. These villages are among the poorest and most disadvantaged communities within the state. A significant proportion of these beneficiaries are tribals. 1.2 The three main components under the project include (a) enabling environment for CFM; (b) forest management: and (c) community development. Under enabling environment for C'FM, the project would support policy and institutional changes and capacity building both of the government. commuLnity organizations and NGOs and also support project management, monitoring and evaluation. The forest management component would focus on improving productivity of designated forest lands through improved planning and silvicultural practices, introduction of Non-Timber Forest Products (NTFP) using multiple use shrub and tree species including medicinal plants, agro- forestry, common land afforestation, fodder and pasture development. The focuLs of Community development componienit would be to help the communities in improving their village infrastructure and livelihood opportunities throughI forest as well as non-forest based income generationi activities. The project support would be available for limited community infrastructure development in the VSS villages, whlere no other agency is extending such assistance, with a view to foster a sense of uLnity wvithin the village. 1 .3 The project has been designed for achieving a mcaningful participation of all stakel-molders including tribal groups. The project will employ Community-Driven Development approaclh, where community will be empowered to take all decisions for protecting and developing forests; and harvesting and distribution of the harvest/produce. VSSs have been constituted witlh representation fromn different sections of the local communities facilitating transparent decision makinig processes wvithin a VSS. The VSS communities participating in the project will be mobilized to plan and inplemenit Micro plans for eachi of the VSS areas. These plans will outline all project interventionis (includinig tribal development activities) to be undertaken in each VSS area. The project will have capacity building support to empower the communities in strengthening their capacities in planninig. implementing and monitoring the project activities. 2. Need for a Tribal Development Plan 2.1 Tribals are primarily forest dependent communities: and these are locally called as girijans. These groups, according to Constitution of India, are recognized as Scheduled Tribes (ST). Tribal Social and Environmental Assessment of AP Community Forest Management Project FILE COPY Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized
Transcript
I P P 7 rTr7ribal Developmient Strategy
ANDHRA PRADESH COMMUNITY FOREST MANAGEMENT PROJECTTRIBAL DEVELOPMENT STRATEGY AND ACTION PLAN
1. About the Project
1.1 The Government of Andhra Pradesh has formulated a new approach to forestry involvingparticipation of the forest dependent communities. This Community Forest Management approach isa radical shift from traditional estate forestry. The Government of Andhra Pradesh has approachedthe World Bank for financial assistance to implement this approach in 14 districts (Adilabad,Khammam, Warangal, Karimnagar, Nizamabad, Medak, Mahabubnagar, Srikakulam, Vizianagaram,Visakhapatnam, East Godavari, Nellore, Chittoor and Cuddapah) in 5000 selected villages with highpoverty incidence distributed in the forested northern, coastal and southern belts of the state. TheProject aims to consolidate and expand the benefits of the Joint Forest Management implementedinvolving local forest communities through Vana Samrakshana Samithies (VSS). Under the presentproject (Andhra Pradesh Community Forest Management Project), VSS participation is estimated tobenefit approximately 326 000 households, or about 1.8 million people. Tribal communities,recognized as Scheduled Tribes (ST) overwhelmingly constitute the 5000 VSS villages targetedunder the project. These villages are among the poorest and most disadvantaged communities withinthe state. A significant proportion of these beneficiaries are tribals.
1.2 The three main components under the project include (a) enabling environment for CFM; (b) forestmanagement: and (c) community development. Under enabling environment for C'FM, the projectwould support policy and institutional changes and capacity building both of the government.commuLnity organizations and NGOs and also support project management, monitoring andevaluation. The forest management component would focus on improving productivity of designatedforest lands through improved planning and silvicultural practices, introduction of Non-TimberForest Products (NTFP) using multiple use shrub and tree species including medicinal plants, agro-forestry, common land afforestation, fodder and pasture development. The focuLs of Communitydevelopment componienit would be to help the communities in improving their village infrastructureand livelihood opportunities throughI forest as well as non-forest based income generationi activities.The project support would be available for limited community infrastructure development in the VSSvillages, whlere no other agency is extending such assistance, with a view to foster a sense of uLnitywvithin the village.
1 .3 The project has been designed for achieving a mcaningful participation of all stakel-molders includingtribal groups. The project will employ Community-Driven Development approaclh, wherecommunity will be empowered to take all decisions for protecting and developing forests; andharvesting and distribution of the harvest/produce. VSSs have been constituted witlh representationfromn different sections of the local communities facilitating transparent decision makinig processeswvithin a VSS. The VSS communities participating in the project will be mobilized to plan andinplemenit Micro plans for eachi of the VSS areas. These plans will outline all project interventionis(includinig tribal development activities) to be undertaken in each VSS area. The project will havecapacity building support to empower the communities in strengthening their capacities in planninig.implementing and monitoring the project activities.
2. Need for a Tribal Development Plan
2.1 Tribals are primarily forest dependent communities: and these are locally called as girijans. Thesegroups, according to Constitution of India, are recognized as Scheduled Tribes (ST). Tribal
Social and Environmental Assessment of AP Community Forest Management Project
FILE COPY
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
Pub
lic D
iscl
osur
e A
utho
rized
population overwhelmingly constitute the 5,000 VSS villages targeted under the project. Thevillages inhabited by tribal groups are among the poorest and the most disadvantaged communitieswithin the state. A significant proportion of these beneficiaries belong to landless category whodepend mostly on wage labour and forest produce collection. The forest policy of 1988 recognizedthat the rights and concessions of tribals in relation to forests should be fully protected. It statesamong other things that with regard to symbiotic relationship between tribal people and forests, it isthe primary task of all agencies responsible for forest management to associate closely with the tribalpeople in the protection, regeneration and development of forest. This requires thalt such agenciesprovide gainful employment to people living in and around the forests. Further, given the socialstratification of the society and the seclusion of tribals and their areas from the mainstream there areproblems that inhibit tribal participation in development activities. Some of the problems and issueshave evolved overtime and to remove them require deliberate interventions under the Project.Therefore, it is of paramount necessity to give top priority to tribal issues while introducing CFM inthe state. It is with this background that a Tribal Development Plan (TDP) has been prepared mainlyto enhance the participation of tribal communities in the project and to facilitate them in derivingbenefits under the project.
3. Objectives of TDP
3.1 The underlying philosophy of TD component under the project is to reduce the dependence of tribalson the forests for tlheir economic subsistence and to narrow the gap in the levels of development oftribal and non-tribal through deliberate actions for socio-economic development of tribals. As statedabove, the objectives of the TDP are mainly to:
* Ensure that tribal communities are not affected adversely by project interventions and alsothat the project does not create any new sources of social and economic imbalancesbetween communities
* Ensure tribal inclusioll in the entire process of preparation, implementation and monitoringof project activities
* Ensure that the benefits of the project are available to tribals more than or at least at parwith the rest of the commlluniity; this may require giving preference to tribals over otherson certain benefits under the project
* Provide a base for tribals In the project area to receive adequate developmental attentioni.
4. Process of social assessment
4.1 In order to assess likely impacts due to project interventions on tribals and identify issues that mayinfluence their participation and access to benefits unlder the project, a tribal study was carried out aspart of the over all social and environmental assessment (SEA) of the project. The SEA was carriedout in a sample of 20 VSS areas representing different agro-climatic zones and socio-economicfeatures of the state. In order to collect required information/data, various methodologies wereemployed which included review of secondary data, interviews, focus group discussions.participatory mapping, transect walk of the VSS areas, etc. The study also intervilewed all thosefamilies found encroachiing or dependent on forest lands within the VSS area and a plan formitigating adverse impact has been prepared separately. A significant number of these affectedfamilies belong to tribals (refer to Resettlement Action Plan for more details).
2
4.2 As part of tribal study under SEA, detailed discussions were held with the village elders andknowledgeable persons about the tribal groups in VSS villages to understand their issues particularlythose associated with forests and their management. Although the issues are overlapping, attemptswere made to make a distinction between those that are directly related to the project and those thatmay influence the over all socio-economic conditions of tribal communities. This helped to identifymeasures that can be undertaken with project funds and the issues which can be addressed bydovetailing on-going development programs and schemes in the area. Discussions were also heldwith the village level government officials particularly from forest and revenue departments onissues relating to land tenure system among tribal communities. Detailed consultations were alsoheld with local Panchayat representatives and officials of line departments on exploring thepossibilities of dovetailing existing government schemes in the area for the over all socio-economicdevelopment of tribal groups. Discussions also focused on the possible measures to be undertaken aspart of tribal development under the project.
4.3 The information thus collected provided the base for developing a broad TD strategy, which wasfurther discussed during the stakeholders consultation workshops held at regional and state levels.Besides the general social assessment of the project, detailed information was obtained on tribalcommunities in the 20 VSS covered under SEA. Attempts were also made to assess the vulnerabilityof the tribal groups particularly on their dependence on such forest and forestlands for theirlivelihood. Discussions also focused on the impacts of the previous project and on the identificationof measures required to enhance the participation of tribal groups in the project. planning andimplementation. Information collected both for 20 VSS areas as well as the general socio-economicconditions of the tribal communities in the state provided the base for preparing this TD strategy andTDP for the project.
4.4 As part of project implementation? the process of social imnpact assessment (SIA) will also be carriedout by VSS communities facilitated by NGOs/Community Organizer (CO). This process of socialimpact assessment will be a part of preparing Micro level plans at the VSS level.
5. Baseline data5.1 Tribal habitations: In the state, tribal groups are found inhabiting mostly in nortlh coastal and north
inland districts In other districts, tribal population is not significanit. Based on1 the area of habitationi.the tribal population in the state can be categorized as living in and around 9 scheduled (ITDA)areas, 41 MADA (small pockets of tribal concentration outside scheduled areas) and 1 7 clusters (fordispersed tribal groups) and 8 primitive tribal groups. In the above 9 scheduled areas, the STpopulationi totals 2.5 million or 56 % of the state ST population. The scheduled area in the stateconstitutes I I% of total geographical area. Density of population in tribal areas is 125 as against 194in the plain. The population details (in lakhs) of 14 CFM project districts are given in Table I.
Table 1: ST Population in 14 CFM districts (1991) (in lakhs)S.No District Total Population ST Population % of total populationI . Srikakulam* 23.291 1.34 5.82. Vizianagaram* 21.11 1.90 9.03. Visakhapatnam* 32.85 4.69 14.34. East Godavari* 45.41 1.76 3.95. Nellore 23.92 2.14 8.96. Chittoor 32.61 1.05 3.27. Cuddapah 22.68 0.47 2.18. Medak 22.70 0.95 4.29. Nizamabad 20.38 1 .21 5.9
Total 377.18 31.6 8.4* Project Districts having ITDA.
Of the total VSS selected under the A P Community Forest Management Project, 2393 VSS havesignificant (more than 50%) tribal population. Expectedly, these VSS are mostly in north and northeastern districts of the state. Table 2 gives details of distribution of VSS in terms of composition ofTribal population
Table 2: Distribution of districts in terms of tribal po ulationDistrict VSS with < VSS with tribal VSS with VSS with >
15% tribal population tribal 50% tribalpopulation between 15 % population population
* Districts in Norther n and North Eastern region and havinig ITDA
5.2 Tribal groups: Andhra Pradesh is the traditional home of nearly 33 tribal groLips, of wlhich 30 livein scheduled areas (sprawling 30,030 Sq. Kms.) and the rest outside. Most of these communities arefounld ihllabiting the border districts of the State in the North and North-east. Unlike the socialstructLre of caste groups in the state, tribal social organization is generally based on totemic clans.The various tribal groups claim mythical affinity with certain species of natural phenomenon ofspecific inanimate objects and they regard these animate or inanimate objects as their ancestors. Thisbelief system and associated practices are called totemism. These totemic objects are considered assacred and killing or eating of the flesh is a taboo. If their totemic animal dies, the concerned clanmembers observe all kinds of rituals and ceremonies and bury it as if their own dead kith and kin.The totem clans are found among jatapus of Srikakulam and Vizianagaram districts, in all the 15tribal groups of Visakhapatnam district, among koyas of Godavari gorges and Gonds, Kolams.
4
Pardhans and Thotis of Adilabad district. The list of officially recognized (based on SCs & STsOrders Act 1976) tribal groups as Scheduled Tribes (STs) is furnished under Table 2a.
Table 2a: List of officially recognized tribal groups in the state1. Andh2. Bagata3. Bhil4. Chenchu, chenchwar5. Gadaba6. Gond, Naikpod, Raj Gond7. Goudu (in the Agency tracts)8. Hill Reddi9. Jatapu10. Kammara11. Kattunayakan12. Kolam, Mannervarlu13. Konda Dora14. KondaKapu15. KondaReddi16. Kondh, Kodi. Kodhu, Desaya Kondh, Dongria kondhi, Kuttia Kondh, Tikria Kondh, Yenety Kondh17. Kotia., Bentho Oriya, Bartika, Dhulia. Dulia, Holva, Pako Putiya, Sanrolna, Sidhopaiko18. Yanadi19. Yerukula20. Koya, Gond, Rajah, Rashakoya, Lingadhari Koya (Ordinary) Kottukoya, Bhine Koya, Raja Koya21. Kulia22. Mali (excluding Adilabad, Hyderabad, Karimnagar, Khammam, Mahboobnagar, Medak, Nalgonda.
Nizamabad and Warangal.23. Manne Dora24. Muklha Dora. Nooka Dora25. Nayaks (in the Agency tracts)26. Pardhan 25. Porja, Parangi Perja27. Reddi Dora'8. Rona, Rena29. Savara, Kapu Savara, Maliva savara, Khutto Savara.30. Sugali, Lambad a31. Thoti (in Adilabad, Hyderabad. Karimnagar, Khammam, Mahboobnagar & Warangal districts.32. Valmiki (in the Agency tracts)33. Savara, Kapu savara, Maliya savar, Khutto savara
In the state, there are 6,686 villages where tribals are found living. Of these. 5,963 villages are inschedLIled areas and the rest 750 are in non-scheduled areas where GOAP hias formed MADA andPTGs (Primary Tribal Groups). Numerically, lambadis, Kulia, Koyas, Yanadi, and Yerukulas almostaccount for more than 90% of the tribal population in the state.
5.3 Population: The total tribal population in the State of Andhra Pradesh is 4.2 million (as per 1991census). The state has the seventh largest tribal population in the country with about 6.3 1% of thetotal tribal population in the country. About 94 % of the tribals live in rural areas (many in very closeproximity to forests) and 6 per cent in the urban areas. ST population growth rate (1981 - 91) is 33.2%. Applying this growth rate, the tribals in the state may now number around 5.6 million. In the 14
5
project districts, the tribal population accounts for more than thre fourths of the total tribals in thestate.
5.4 Literacy: Education has special significance for the Scheduled Tribes, as it is an important input fortheir human resource development. It not only improves prospects for economic development butalso promotes self-confidence and helps in building up capacity to meet the challenges of thechanging socio-economic scenario. On account of illiteracy, ignorance and other socio-economicfactors, STs have been subjected to exploitation and oppression. Though literacy rate among STshas been showing improvement, the decennial growth rate is very slow. While general literacy rate is57.69 %, it is only 29.6 % among STs. The general decennial literacy growth is 16.39%. but amongSTs it is only 13.25% for the period 1981-91. The drop out rates among STs for the primaryeducation is 63.8 % and for the middle education it is 79.35%; while that for secondary education thedrop out is as high as 86.28%. With regard to female literacy, the rate is 18.19% for sTs as comparedto 39.29% of general female literacy. The low level of literacy among ST women is a cause of graveconcern and is largely responsible for their marginalisation in socio-economic fields.
For attending to education needs of the tribals in the state, GOAP has set up 501 Asliram schools inremote villages, 65 Residential schools, 505 hostels. Besides, 1850 Mabadis (our school concept)have been established where the parents of a given village, withi support from the Government, startschool in their village with locally available educated youth functioning as teacher. The parentsthemselves manage such schools and as sucih there is a sense of ownership on the part of the villagersabout thiesc schools. GOAP has also enrolled 3,482 Vidya (educationi) volunteers to ensure widercoverage.
5.5 Health & Nutrition: In general, the health condition among STs in the state is founid to be poor.This is reflected in terms of higih mortality rate of infants under 5 years-children and maternalmothiers among STs than others in the state. The most common health problems reported are acuterespiratory infections, diarrhea and gastroenteritis. Unhygienic living conditions, absolute lack ofconcern for healtil and sanitation, malnutrition and poverty coupled with poor network of healthi careare the primary reasons for such ulihealthy living.
As part of tribal wNelfare initiatives in thie state, GOAP hias engaged 8,500 CoIilLullity HealthiWorkers whio, with adequate education on First Aid and minimum health care, work as barefootdoctors in the remote and interior tribal habitations. Tlis initiative supplements the network ofPrimary Health Centers (PHC) and hospitals administered by the ITDAs.
5.6 Work participation: Tribals are mostly engaged in land-based activities relatinig mainly toagriculture (as cultivators and farm labor) and forest (forest produce collection and wage earners).According to 1991 census. main workers among STs are engaged as cultivators (54.5%), agriculturelabor (32.69%), 11ouselhold industry (1.04%), other workers (11.76%) against figures of 39.74%.19.66%, 2.56% and 38.04% reported for general populationi. The classification of wvorkers is givenbelow (Table 3):
Table- 3. Occupation of main works
Occupation % of workers to total workersTribals State
Cultivator 54.50 39.78Agriculture Laor 32.69 19.66Houselhold Industry 1.04 2.56
6
|Other Workers 11.77 | 38.00Total 100.00 100.00
Source: 1991 Censes of India
5.7 Land tenure among tribals:
5.7.1 Landholding among STs: Tribals in the state, in general, belong to small and marginal farmcategories. The total number of tribal holding as per 1985-86 Agricultural Census is 7,648, whichconstitutes less than 8% of the total holdings in the State. In terms of area, STs operate 17,234thousand hectares which is a little more than one tenth of the total operated area in the State. Thearea operated and operational holdings are presented in Table 4.
Table 4: Operational holding
Social Group No.of Holding Area operated( number) ( ha.)
5.7.2 Land tenure in Tribal areas: Tribals, especially in the north coastal (Srikakulam, Vizianagaram.Visakhapatinam and East Godavari) and north Telangana (Adilabad, Khammam, Karimnagar andWarangal) districts traditionally practiced shifting cultivation in its true sense. The cycle of shiftingand other details of agriculture and other social practices were regulated throughi a well-defined andstructured system of local governance, which is similar to the panchayat system at village level. Thepractice of shifting cultivation though not environment friendly did not cause great loss as long asthe population was less and the cycle of shifting had wide gaps. The cycle however graduallyreduced with growth in local population. With the advent of state's policy of reservation of forestedareas for forestry purposes, these tribals were excluded and they did not have the same amount ofaccess as they had earlier. As a measure to provide land to those tribals whlo lost lands and to settlethe land tenure, the Governmenlt took a number of measures like abolition of Plrivate estates,conversion of nialki, muttadari and mahalguzari rights into Ryotwari rights for those who lost landdue to reservation of forests. Dis-reservation of forest lands was assign land to to Tribalagriculturists. But the policy of disreservation of forests and converting the land use from forestry toagriculture resulted in encroacihmnents. Furthier, these initiatives in the 60s and miid 70s almostcoincided with according a status of tribals to the community of lambadas who across the border inMaharashtra did not enjoy such a status. This encouraged large-scale migration of lambadas intoAdilabad district from across Maharashtra. Similar migration took place from C)rissa into theneighboring Visakhapatinam district around the same time where tribals displaced by l lydel projectsmigrated to Andhra Pradesh in search of land and employment.
Since mid 80s. the law and order situation especially in the tribal areas of Andlhra Pradesh hasdeteriorated with increase in activities of Extremists and unsocial elements (locally called Naxallites)and the Forest Officers were mute spectators to large scale plundering that took place. Around 1987,the situation was so bad that in a case of ambush senior police officials were killed in a place calledAlampalli in Adilabad and this problem again attracted the attention of the Government. It wasthought that land in general and forestland in particular was the major issue for tribal unrest, whichwas exploited by these extremist elements. A decision was taken during December 1987 to identifyall the encroachments that existed prior to 1980 for considering their de-reservation. (the cut off datebeing the date on whichi the Government of India had passed the Forest Conservation Act according
7
to which no forest land was to be diverted for non forestry activity without the prior approval of theGovernment of India). This further instigated more encroachments. It was estimated that nearly100,000 ha were encroached consequent to the above decision of the Government to consider de-reservation of pre 1980 cultivations. It was virtually impossible to make any distinction between pre1980 and post 1980 encroachments, after nearly seven years from the cut off date and the worseninglaw and order situation added to the misery of foresters. Realizing the potential ill effects of suchlarge-scale encroachments, the Government subsequently during 1995 withdrew its decision of 1987to consider regularizing pre 1980 cultivations. In this entire bargain nearly 25% of forests havecome under encroachment.
The efforts made by the Government to evict the encroachments treating the encroachers aslawbreakers and dealing with them invoking the punitive measures of the AP Forest Act 1967 didnot yield any results. On the contrary, such measures taken in the past till late 80s resulted in asituation of conflicts and tensions among the foresters and villagers. The community of foresters lostpublic sympathy and were persona non-grata in Tribal areas. However, with the advent of JointForest Management since mid 90s, there is a greater harmony between foresters and tribals. There isalso reduction in fresh encroachments as the livelihood issues of the forest dependent communitiesare addressed. With sincere efforts made in educating the tribals of ill effects of encroachiing forestlands and showing and providing viable alternatives with the financial support of the World Bankassisted AP Forestry Project, nearly 37000 ha of forest lands under encroachment in the tribal area ofVisakhapatnam district have been voluntarily put under productive tree crops by the tribals who hadencroached these lands. Thus persuasion and motivation coupled witlh education have yieldedpositive resLults that could not be achieved through coercion. Therefore, the approach proposed to beadopted under the project is to continue the process of persuasion and motivation coupled witheducation on the ill effects of encroaching forest land and providing support for alternate livelihoodopportunlities.
5.8 Agriculture: The tribal households in general are located in fringes of the forest. Their landstherefore, are undulated and rainfed. The tribal communities in general lack the knowledge and skillof improved agriculture and therefore continue to practice the traditional and subsistence agriculture.In order to improve farming practices among tribals, these farmers are being encouraged to useimproved seeds and chemical fertilizers. The proportion of irrigated land is only 1 3.1 O/o among tribes.which is muchI less tlhan the state's average of 37.9%.
5.9 The socio-economic conditions of tribals observed in the 20 VSS areas are not different from theirstatus discussed above (see Annaex 1). As may be noticed, there are 8 VSS, whiclh have almost alltheir members belonging to tribal groups.
5.10 Status of women: The status of women is generally high among tribal communities as compared tononi-tribal groups, particularly the scheduled castes. The women in tribal society enjoy freedom insocial matters, but they hiave hardly any role in the communal decisions making process althouglh,some change is taking place. However, they play a major role in household affairs and are largelyresponsible for houselhold food security.
6. Legal and Policy framework for tribals in A.P.
6.1 The government both at Centre and State have formulated a number of policies to safeguard theinterests of tribals and have initiated a number of development schemes for the welfare andupliftment of tribal communities. They are broadly categorized into the following and discussed inthe subsequent sections:
8
+ Constitutional safe guards+ Policy regulations+ Development and welfare measures (special schemes and projects)
Safeguards forTribal Welfare
safeguards
~~~~~ on
nstitutional |< 4 | D,oli_ica
ervlce \ safegfeguard
6.2 Constitutional safeguards: A number of constitutional provisions are already in place to safeguardthe interests of tribals in the country, some of the important ones are indicated below.
* Administration: Under Clause (1) of Article 244, the Fifth Schedule applies to theadministration and control of the Scheduled Areas and STs in a state.
* Tribal Development: Article 275(1) provides for grants-in-aid of the revenues of a stateto enable it to meet the cost of development schemes for the welfare of STs in that state.
* Promttotion of education: Article 15(4) along with subsequent amendments empowersthe state to make any special provision for the advancement of any social andeducationally backward classes including STs and also enables the state to reserve seatsfor them in educational institutions.
* Political dfi ti{lrd,. Article 330 & 332 provides for reservation of representation ofSCs & STs in the Lok Sabha (Parliament) and Vidhan Sabhas (State LegislativeAssemblies).
* EmnplovMent: Article 16(4) empowers thie state to make "any provision for thereservation of appointments or posts in favor of any backward class of citizens(includinig ST) if not represented adequately in the services under the state".
* Reservations in educational and emplolvment opportunities: Constitution of Indiaprovides reserving certain percentage of seats in all educational institutionis and publicemploymenit In proportion to the tribal population. Residential or 'Ashranm Schools' arebeing rull in the ITDA areas to provide primary and secondary education for STs. Article1- Civil Rights."Untouchability" is abolished and its practice in any form is forbidden.The enforcement of any disability arising out of "Untouchability, shall be an offencepunlislhable in accordance with law.
6.3 Policy regulations: Followvig laws, rules and regulations and policies pertaining to tribals and tribaltracts have special relevance to the Project under assessment.
* Th7e Agencyv Traccts Interest and Laznd Transfer Act, 1917 restricts transfer of land in theAgency' (tribal) tracts. It regulates debt and interest on the borrowings by the hill tribesand transfer of their immovable property. It was enacted primarily to safeguard theinterest of hill tribes of the area over whiclh it extended and to protect them fromiiexploitation by non-tribals and moneylenders. It permitted transfer of land only amongtribals and laid down that the interest accrued over the debts borrowed by the tribalsslhall not exceed the principal amount. The Andhra Pradesh Scheduled Arecas LandTran fer Regiulation, 1959 extends the provisions of the above Act.
* The A7ldhra Pradesh (Andhra Scheduled Areas) Estate (Abolition cand conversion intoRyotwari) Act 1948. Tlhe Andhra Pradesh Mahals (Abolition and conversion intoR 'otwari) Regultation, 1969 and The Andhrca Pradesh Mutta (Abolition anld conversioninto Rvotwari) Regulation, 1969: These are land mark enactments and promulgationsthat facilitated state owniership of private estates and lands in the scheduled areas and
10
paved way for settlement of land tenure. Prior to these enactments and promulgationslands in the Scheduled areas were under private ownership in the form of Estates.Mahals were private estates in certain parts of the present Khammam district. Estates,and Mahals owners leased parts of their lands to tenants for cultivation. In the scheduledareas of Visakhapatnam and East Godavari districts, the then rulers granted 'Mokassas'and 'Mutta rights' to certain individuals in recognition of service rendered by them likeassisting in collection of land revenue, maintaining law and order etc. Since these werebasically grants, the tribals did not have absolute rights over these properties. Throughabolition of Estates and Mahals the state paved way for settlement of rights of all thetribal tenants who tilled these lands. The forested areas of these Estates were taken overand reserved as State Forests. Further through abolition of Mutta rights and theirconversion as Ryotwari Pattas the Mokassas and the Mutta rights were settled in favor ofthe tribals who tilled these lands. Thus the enactments and promulgations paved way forsettlement of land rights to the tribals.
* National Forest Policy 1988: GOI through Resolution dated 7"l December 1988 haverevised their Forest Policy. The strategies relevant for Tribal welfare and clevelopment inthis policy states: "Having regard to the symbiotic relationship between the tribal peopleand forests, a primary task of all agencies responsible for forest management, includingthe forest development corporations should be to associate the tribal people closely inthe protection, regeneration and development of forests as well as to provide gainfulemployment to people living in and around the forest". Specific provisions of the policyarea:- In order to put an end to the practice of illegal cutting and removal by contractors,
contractors should be replaced by institutions such as tribal cooperatives, laborcooperatives, government corporations, etc;
- Involvement of tribals in protection. regeneration and optimum collection of minorforest produce along with institutional arrangements for the marketing of suchproduce;
- Development of forest villages on par with revenue villages;- Promote family oriented schemes for improving the status of the tribal
beneficiaries;- Undertake integrated area development programs to meet the needs of the tribal
economy in and arouLnd the forest areas, including the provision of alternativesources of domestic energy on a subsidized basis, to reduce pressure onl the existilunforest areas.
6.4 Development and welfare measures: Following are some of the important initiatives and
Status of Tribal Development in Andhra Pradesh, 2001
250 212
200 - - - i
150 1 08 --
100 - - 1- 5 9590 _00
44.09 7 46 467950 - 16 l* 3 8
0 .,A 0 \o
O State as awholeU Scheduled Tribes
government programs taken up by the Government for the overall socio-economic development oftribal areas and tribal people. These include both economic schemes and infrastructul-e developmentin tribal areas. Econoinic schemes are both individual oriented and group based and include in mostof the cases subsidy in the range of 50-75%.
* Tribal Suib-Placni (TSP) strateg,: In order to focus tribal development, a TSP strategy isbeing implemented in the State since 1974-75. This strategy comprises of identificationof tribal majority blocks, earmarking of fntd under various sectoral programs for theseidentified areas along with mobilization of institutional finance and creatioln ofadminiistrative structure. This has provided focused development of tribals across allsectors.
* Programs under Tribal Development Agencl:. Integrated Tribal Development Agencies(ITDAs) have been created for development of tribals in the tribal schedule areas. Themaini schemes implemenlted by ITDAs include minor irrigation, soil conservation,horticulture. fisheries. sericulture, health and infrastructure for social support services.Centrally sponsored schemes are also being implemented to tackle special problems.namilely, malnutrition, adult literacy, rehabilitation of shifting cultivators, etc.
+ .Juwahar Gram Sacrnrdhi Yojanca (JGSY): This scheme launched in 1999 aims to enablethe village community to strengthen the village infrastructure through creation ofdurable assets as per the local needs. The works taken up provide gainful employment torural poor. The gram sabha while according approval to conform to the felt needs ofschemes given to SC/ST families living below poverty line and physically handicappedpersons. Besides, in selection of thie works, preference is given to woks in the area
12
inhabited by the SC/STs. Further 22.5 per cent of the State budget is marked exclusivelyfor the benefit of SCs/STs.
* Employment Assurance Scheme (EAS): This scheme seeks to provide additional wageemployment opportunities in the form of manual work to the rural poor living below thepoverty line. In the process, the effort is to create durable community assets. Minimumwages are paid under the scheme. While providing employment, preference is given toSC/ST and parent of child labor withdrawn from hazardous occupation, who are belowthe poverty line.
* Swarnjayanti Gram Swarojgar Yojana (SGSY): Under this scheme, assistance isprovided to the poor families living below the poverty line in rural areas for taking upself-employment activities, either individually or in groups, called the Self-Help Groups.SGSY is a credit-cum-subsidy program. Subsidy is given so as to make it easy for thepoor persons to start their own self-employment activities. An individual is given loanupto Rs.50, 000 and SHGs upto 3 lakh without any collateral security. Subsidy is givenat the rate of 30% of the project cost with a limit of Rs. I 0000/- for SC/ST.
* Sectorac programs: In addition to the above special programs focused on tribals thereare a number of other development schemes which are being implemented underdifferenit sectors including agriculture, aniimial husbaidFry, 1horticulturC, fishleries, healtlh.educationi, etc. In tribal areas, majority of beneficiaries under these programs are fromtribal groups.
* Joint Forest Mlaunagemnt n JF'fl Local village level institutions called VanaSamrakshana Samnithies (VSS) are successfully protecting and developing forest areas intribal areas. Owing to homogeneity of the community and a strong local leadershipdeveloped, this program has been a great success among tribals. Apart from providingwage employment during lean agriculture season, tribals involved in JFM and protectingthe forests are entitled to the following share from the forests:
* All Non-timber Forest Produce (NTFP) except those for whiclh GCC holds themonopoly rights. However, the rights to collect remains with the VanaSamrakshania Samitlli members. The members are paid the collection chargesUpoIn delivery of the produce as per the rates fixed by the Governlnenit.
* In case of Beedi Leaf 50% of the net income from increased yield over and abovethe average yield of 5 years (in weight) due to better protection and managemllentoffered by the VSS is paid to Vana Samrakslhania Samitlies to be shared amollgmembers equallv.
* Vana Samrakshana Samithi is entitled to 100% share in timber and bambooharvested from the regenerated degraded forests as prescribed in the approvedMicro Plan.
* Besides the above, following benefits also accrue thougLh JFM:- Arrest soil erosion and moisture losses through soil conservation measures
wlhich result in increased biomass production,- Increased food crop production through supply of agricultural implements.
seeds, fertilizer, pesticides, organic manure and support to improveagricultural practices throughI demonstrations on farmers' field;
- Development of horticulture in newly developed, shifting cLultivation aswell as degraded agricultural plots;
- Value addition activities for agricultural and forest produce throughimproved storage, processing and transport to marketing outlets andresearch support for developing high value products from NTFP; and
13
- Village development initiatives through appropriate training andstrengthening of ongoing activities by exploiting local skills and needs.
6.4.1 Information on the coverage of tribal areas and population under various tribal development andwelfare programs of the government during the lat two decades (1981- 2001) can be seen from thetable below:
Table 5: Tribal welfare during 1981- 2001.
Scheme / sector Unit I In 1981 In 2001AgricuiltutreArea covered by soil conservation Ha 145000 195344Area under HYV of paddy Ha 54600 331439Horticultural development Ha 13388 527120D.R .Depots Nos. 350 853Electrification of Tribal Villages No. 733 5831All weather roads Kms. 4477 5315Drinking Water sources No. 9181 10024Education
Enrolment in Primary Schools No. 239079 497042Enrolment of Boarders No. 61238 209156Post-Metric Scholarships No. 4000 50000Construction of Buildings for No. 197 788Educational InstitutionsHealthPHCs Nos 32 120Sub Centres Nos 91 1110Upgraded PHCs (30 beds) Nos 2 18ICDS Project Nos 7 29M.M.Units Nos 24 29Dispensaries No. 31 24Hospitals No. 16 9Angtanwadi Centers No. 300 6365
7. Consultation with tribals an(I other stakeholders
7.1 Involvement of tribal communities is vital in planning and implementing project activitiesparticularly in tribal areas to get their views and to ensure their acceptance of the proposed actions intheir VSS under the project. Consultationi withi tribals assumes added importance in formulationTDPs and planning for activities proposed to be undertaken to enhance their participation in theproject. While preparing the present TDP, extensive consultations were held with the local tribalcommunities and other staklieholders including village elders, village level government officials,NGOs and civil society. While the consultation methods followed to elicit required information aredetailed below (Table 6), details of the consultation process including the dates when theconsultations were held, place of consultation, no. of participants, issues raised and how these havebeen addressed in both the TD strategy and TDP have been presented in Annex It.
14
Table 6: Consultations with tribal communities and other stakeholdersStakeholders MethodTribal communities Individual discussions, field level observations,
transect walks in VSS vilagesLocal VSS and neighboring Focused discussions, Village meetings,communities regional and state level stakeholders
workshopsElected representatives to local Individual interviews, consultations on forestgovernments maps, regional and state level stakeholders
workshopsLocal forest officials Joint meetings and individual consultations on
forest maps, regional stakeholders workshops
Project officials and line departments Joint meetings, individual interviews andconsultations, regional and state levelstakeholders workshops
NGOs/members of civil society Consultations and individual meetings,regional and state level staklieholdersworkshops
7.2 Some of the important issues raised and addressed in the TDP are:
* Inadequate participation in the project* Inadequate representation in the decision makiing process under the project* ILack of capacity to manage the project activities at the VSS level* Dependence on forests for their livelihood* Tribal customary rights and restriction+ Encroachmenit including shifting cultivation in the forest areas assigned to VSS* Value addition to NTFPs and restrictions faced* Sharing of usufruct particularly in VSS with mixed population* Conflicts with neiglhboring communities on usufruct and customary rights* Lack of employment opportunities* General poor socio-economic conditions in tribal villages* Specific efforts required to dovetail government schemes for the socio-econoomic
development of tribal groups
7.3 Involvement of tribal in the project implementation: During implementation of the project (Microplan) and this TDP, the field level functionaries (MC of VSS, NGO/CO, VSS Advisory Council andfunctionaries of the Forest Department) responsible for implementing the project at the VSS levelwill involve tribal communities to plan and implement activities under the project. In respect of TDP,some of the activities which will require concerted efforts on the part of project implementingagencies include the following:
* Undertaking social impact assessment at the VSS level* Identifying issues related to tribals in the VSS village* Identifying gaps in the infrastructure in the VSS* Assessing the implementation of on-going government schemes and families
benefited so far* Identifying strategies to be adopted to enhance the participation of and project
benefits to tribal communities* Identifying specific activities to be included under TDP* Identifying government and other development schemes that could be dovetailed
for the socio-economic development of tribals* Developing a TDP specifying activities that could be taken up with government
support, other components of the project and identifying activities which need tobe undertaken with TDP finds under the project
+ Coordinating with concerned agencies to dovetail government schemes+ Monitoring the implementation of TDP
7.4 VSS level functioniaries includilg MC of VSS, facilitating NG/ CO, VSS Advisory Council and fieldlevel functionaries of FD will ensure full participation of the tribal families in each of the activitiesunder this TDP as well as the activities that would be detailed out in the VSS level TDP.Representatives of the affected community, NGO/CO, Panchayat, FD officials in the ForestCommittees at divisional and district levels will help in enhancing the participation of tribal groupsin the decision making process pertaining to TDP activities in tlheir area and also in addressing anygrievances. Specific efforts will be undertaken to ensure participation of tribals in mixed population.
8. Issues concerning Tribal Welfare
8.1 Given the socio-economic backwardness of STs, tribals and their areas continue to lag behind thegenieral population. The approach so far adopted is the top downi planniing and imiplementationi as aresult tribal commnuLlities could not benefit from the various constitutional safeguards, policyregulations and government development programs. This clearly demonstrates the need for focusedattention on tribal issues and involving them in the planning of activities based onl their felt needs.Local tribal groups need to be supported in implementing all the activities Hicluded unrder VSS basedTDPs. This approaclh is the heart of the over all project approach of community driven development.The first step uLnder this approach, is the identification of issues confronted by tribal groups so thatstrategies could be forlLulated. Keeping in view these problems and issues whrich have evolvedovertime and to remove the socio-economic constraints faced by them, there is a need to plan andimplement deliberate intervenitions under the Project. At the same time, there is a need to dove tailthe on-going government development schemes to ensure the continuity of sustained efforts of theGovernment. Thus, it is recognized that it will be too idealistic and utopian to expect that the projectw ill address all the issues and problems confronted by STs.
8.2 The underlying philosophy of TD component under the project is to reduce the dependence of tribalson the forests for their economic subsistence, to narrow the gap in the levels of development of tribaland non-tribal througil socio-economic development and mainstreaming activities. It is in thiscontext that followving key issues were identified during SEA and wvould be addressed under theproject. These issues could be broadly categorized as:
i) Issues directly related to project andii) General issues relating to the tribal life.Some of the key issues unlder these two categories are presented below-:
16
i) Issues related to Project:* Representation in GB.* Representation in MC,* Participation in mixed groups* Awareness of the program* Capacity for program management
o Planningo Implementationo Monitoring
* Dependence on forestso Customary rightso Poduo Firewood collection and head loadingo NTFP collectiono Domestic needs
* Other issueso Encroachment for agricultureo NTI'FP processing and saleo Policy and legal restrictiono Limited market exposureo Low skills and inadequate finances.o Wage employmento Sharing usufruct in mixed groupso Conflicts with other VSS/villages on usufruct rights
* Coordination with other institutionsii) General issues relating to thle tribal life.
* Low literacy and education level* Poor health and hygienic conditions* Unsafe drinking water and poor sanitation* Economic poverty
Low returnis from agriculture and allied activitiesPoor housinig conditionPoor infrastructure - communicationis, roads and bridges, transport and other
village infrastructure including communlnity buildings.
8.3 Based on the issues identified above, a TD strategy has been developed which is presented in amatrix (Table 7). This matrix also gives the responsible agencies for the activities proposed and aswell as possible linkages witlh government and other development programs.
Table 7: Matrix of Tribal issues, strategies and activities
Issues Strategies Proposed activities Responsibilities Possible linkagesProject reloted issutesRepresentationi in Educate MC on Frequent meetings, periodical MC, WCV, PRIVAC, FCs atGB involking all STs reviexN. penalize if not followed NGO/ CO, FSO. ITDA/ Div. / Dist.
FRO levels
Representation in Educate GB on Frequent review, NGO/ CO. WCV, PRI.VAC, FCs atMC involving required Penalize if not followed. FSO & FRO ITDE./Div. / Dist.
no. of STs levels
17
Participation in Educate GB, MC: Frequent meetings and interactions MC, NGO/ CO, PRI,VAC, FCs atmixed groups insist on required with STs; training on leadership; WCV. FSO & ITDA/
quorum; encourage IEC material to focus on tribal FRO, DFO. Div. / Dist. levels,free discussion & issues/ rights, document proceedings I&PR. APFA, APFDconsider issues raised of the meetings, preferential (PW),by STs, IEC strategy treatment in wage employment. Public Mass mediato focus on tribal Micro plans to reflect tribal issuesissues.
Awareness of the IEC strategy to focus Preparation of IEC material; use of MC, NGO/CO, PRI,VAC, FCs atprogram on tribals. folk art forms, mass media: WCV,FSO & ITDA/Div. / Dist.
strengthening eco clubs in schools FRO, DFO. APFA, levels, I&PR, Massin tribal areas: frequent meetings APFD (PW), media,with tribal groups: PRA technique. DEOs & School
teachersCapacity for Orientation programs Plan and organize customized NGO/CO, VAC, TCI'Cs, HD, TTDCsprogram & training, in training on technical aspects; DFO, FRO. FSO, & D-TCmanagement participatory participatory planning and APFA & Regional
planning. monitoring Training Centersimplementation &molnitoring _
Encroachment/Pod Educate on the IEC material to customize on ill NGOs / COs, TCI'Cs, HD. DTC,tl cultivation unsustainability of effects of Podu: field exposure to & VAC. DFOs, TTDC, ITDA,
podu cultivation: training in improved agriculture, and FROs and FSOs, DRDA, GCC, AD,weaning tribal from allied activities: training and APFA and AFID. I-ID. DIC,podu; ensuring assisting in alternate livelihoods. APSOF, KVIC/KVIB, Banks.alternate livelihoods. A policy has already been FCs at ITDA/ Div.Formulate a policy to formulated to mitigate losses to the Dist.. levels. FTCsdeal with dependent forest dependent families.families.
Firewood Reduce demand for Encourage use of alternate energy NGO/CO, VAC, NEDCAPI, '1lTDCs,collcction bN head firewood: promote systems: promote ftuel efficient DFO. FRO and DTC. ITDA.loaders fuel saving dcvices: devices: take up energy plantations: F SO, APFA. DRDAs. IFCs at
support alternate trainiing and assisting in alternate APSOF. Regional ITDA/ Div. / Dist.livelihoot, formnulate livelihoods: A policy has already Training Centrcs levels, DICs,policv to deal 'sith been formulated to mitigate losses to KVIC/kVIB. Banks
I this issuC. thforest dependent familiesN'l-Fl' collcction IResolve owNnership! Frame rules under relevant statute GOAP, APFD. GOI. GOAl'. DPR.
right oill NTFP fotr rcsolvig ovnership issues wsith DPR, 1\D. NMC. TWD, La%' Dept..collection betweenI I'RIs and other tribal villagers NGO/ CO. WCV. APFD. FCs at ITDAVSS, I'RIs outsideI outsidc VSS: work out a DFO. FRO and / Div. / Dist.! stateVSS: and VSS methodology for sharing ot' benefits FSO levels,Imembers amona VSS members.
Domestic needs Formalize an Initiate wnidespread consultation APFD GCI. GOAI'from the forest arrangement for process leading to amendment of
meeting domilestic relevant statUte.needs of VSSmembers.
Policy & legal Amendment of Initiate ws-idespread consultation GOAP. APFD GOCI TWD, GCCrestrictions on relevant statutc, process leading to amendment ofNl-FP sale & Issuing clear policy relevant statute and policyprocessing and guidelines statement.Limited exposure Amendment to Formulate required policy & GOAP, APFD GOI, Bureau ofto market and relevant statute: guidelines: identify micro Indian Standards forquality control, market survc\ ancl enterprises: develop standards for developingmonopolies training need different NTFPs: undertake market specifications, CCC,
assessment: define surv ey through a consultant TWD.standards l
18
Low skills to Develop plan for skill Organize training to impart required NGO/ CO. FRO, Banks and Sectoralprocess and up gradation: skills; arrange credit to take up DFO, schemes, DIC,inadequate finance. formulate enterprise enterprises; link to marketing KVIB, KVIC, GCC,
management plan, institutions; bring out local market Mass mediabulletins
Wage employment Enhance tribal Strict monitoring of deployment of MC, WCV, GOAP - Labor Dept.participation in wage tribal members and wage payment. NGO/ COemployment; ensure FSO & FROequity in wages
Sharing usufruct in Agree on principles Work out methodology for sharing MC, WCV, FCs at ITDA/Div. /mixed groups of sharing usufruct of benefits among VSS members. NGO/ CO Dist. levels
FSO & FRO
Coordination with Define roles and Develop clear guidelines and policy APFD GOAP, TWD, DPR.other institutions responsibilities of statements; remove ambiguity GCC
other institutions visa arising from different statutes.vis VSS.
Conflicts with Encourage cohesive Promote stall feeding, cattle up NGO/CO, AHD. ITDA. DRDA.other VSS and relations among gradation and pasture development MC/ WCV, Banks, I-lousingvillages on neighboring in common lands; supply tents FBO/FSO, FRO. Dept. NEDCAP.usufruct rights - communities, cattle (substitute to wvooden structures) for DFOgrazing, up gradation. stall tise in community gatherings:requirement of fuel feeding and wvood supply improved agriculturalwood and small substitutes; initiate implements made of steel; promotetimber, NTFP NTFP production in alternate energy systems: take upcollection. non VSS area NTFP plantations on individual and
common lands, encourage IGS forNTFP dependent families
General issuesL,ow literacy and Work with ITDA and Awareness program on benefits of MC, WCV, Educationeducation level Education Dept. to education; facilitate enrolment of NGO/ CO. FSO, Department of
enhianice literacy level children particularly girls: montitor FRO, VAC, GOAP. DPEP, ITDAattendance in schools; organize VTDAadult (especially women) literacycenters in VSS villages: dovetailongoing Govt. programs
Poor health and Encourage Facilitate use of ongoing health MC. WCV, RCI I program ofhveienic indigenous hiealth interventions of the Govt.; organize NGO/ CO. FSO, NIII). ITDA. PHCsconditions systems & promote awareness programs; promote FRO. VAC. and Sub Centers
a\\areness on better medicinal plants. VTDAhealthi and hygienc.
Unsafe drinking Educate people about Provide satc drinking X ater sources MC. NVCV. PRI, ITDA. PlIED ofw-ater and poor safe drinking wsatcr and drains; promote various aspects NGO/ CO. FSO. GOAP and DRDAs.sanitation. and local sanitation of sanitation (like sanitar) latrines. FRO. VAC,
indixidual/group micro enterprises: impart rcqluired NGO, CO, FSO. KVIB, KVIC, FCs atactivities for IGS and skills; cxtend support and dovetail FRO. VAC. DFO, ITD AJDiv. / Dist.extend support for on going Govt. programs. VTDA levcls. Banks,the same. TRICOR
Low returns from Promote improved Encourage and sLIpport land MC. WCV. ITDA, DRDA,agriculture and practices in development and soil and moisture NGO/ CO. FSO, DPAP, FCs atallied actixities agriculture and allied conservation measures; improved FRO. VAC. DFO, ITDA/Div. / Dist.
activities and dovetail farm practices and allied activities; VTDA levels, Banks &on going programs. supplementary irrigation; facilitate relevant Govt.
timely credit, processing and storage departmentsfacilities and marketing._
Poor housing Deign and develop Dovetail with on going housing NGO/ CO HUDCO, DRDAcondition eco friendly hotises program of GOAP; assist to access FSO & FRO, Housing Corpn.
19
housing loans. VAC, DFO, PRIs, FCs at ITDAVTDA /Div./Dist. levels
Poor village Identify needs; Prioritize and plan infrastructure NGO/ CO, FSO, PR[, ITDA.DRDA,infrastructure dovetail govt. development as part of village FRO, VAC, DFO, DPAP. FCs at
programs; support development plan; ensure proper VTDA ITDA/Div/Dist.necessary linkages with Govt. schemes. levels; other govt.infrastructure. departments
APFA-AP Forest Academy; APFD-AP Forest Dept.; AHD-Animal Husbandry Department; CO- Community Organizer; DFO-Dist. ForestOfficer; DTC- District Training Centers; FSO-Forest Section Officer; FRO-Forest Range Officer; DIC-Dist. Industries Center; DRDA-Dist.Rural Development Agency; DPR-Dept. of Panchayati Raj, DPEP-Dist. Primary Education Project; FBO- Forest Beat Officer; FTC- FarmersTraining Center; FSO-Forest Section Officer; FRO-Forest Range Officer; FC-Forest Committee; GB-General Bodv; GCC- (irijan CooperativeCorporation; I&PR- Information and Public Relation; KVIB- Khadi anf Village Industries Board; KVIC- Khadi and Village IndustriesCorporation; MHD- Medical and Health Department: MC- Management Committee; NGO- Non-Govemment Organization; PRI- Panchayat RajInstitution; PW- Publicity Wing: Panchayat Raj Institution; RCH- Rural Child Health; TRICOR -Tribal Cooperative Corporation: TWD- TribalWelfare Department; VTDA- Village Tribal Development Agency; WCV- Woman Community Volunteer;
9. Action Plan
9.1 The precise nature of interventions and the additional activities needed to address any specificproblems of tribals would be determined when the strategic social assessment will be carried oLtt atindividual VSS level for preparing Micro Plans. All specific measures proposed to develop tribalpeople in a VSS area under the project will form part of Micro Plan. The model TDP prepared forone VSS and appended to this document (see Attachment I) will help the individual VSS to prepareTDP as an integral part of the Micro Plan.
9.2 Social assessment: The first and foremost in the process of preparing Micro Plan is that wNhen thefield level officials of FD supported by the facilitating NGO/CO start working with the VSScommunities. During this process, these functionaries should ensure the involvement of tribals at allstages of planning and implementing project interventions at the VSS level. Wherever VSS does nothave adequate representation of tribals in its Management Committee, concerted efforts are requiredto ensure that tribals are represented in the committee. This is particularly important in VSS areaswlhere tribals are mixed with general poputlation and there is likelihood that they aretltderrepresenited in the decision-making bodies at the local level. In order to ensure a fairrepresentation to the tribal groups in stcih areas. members from this commun1ity voutld be elected inproportion to their popttlationl in the VSS. In scheduled areas however, all the MC memubers will beSTs. This wvill help ensure that the weaker sections are fttlly involved in thle decision tilakinig process.The role of NGO/CO assurnes importanice here wheni they take up awareniess campaigns to explainthe need for the active involvement of tribals in the decision makinig process at the VSS level.
9.3 For this purpose, NGO/CO and FD ftinctionaries will Lltdertake awareness and commtutticationprogram to explain aboLtt the participatory nature of project activities and the need to involve allsections of the society in planning and implementing project interventions at the VSS level. In areasinhlabited by tribals, Informiiation, Education and Communicationi (IEC) campaigns will be desig,nedand tailored to meet their socio-culttiral sittLations and will be taken up tnore intenisively to ensuretheir participation and a fair and adeqttate representation in the VSS and its MC.
9.4 One of the criteria for inclusion of VSS Ltnder the project will be its willingniess to address isstiesrelated to tribal groups. NGO/CO and FD staff will liaise with and mobilize, as required, othergovernment agencies in the area to provide support and dovetail relevant government schemes forthe development of tribals in VSS areas and also seek focused attention of staff working with variousline departments. For this purpose, capacity woLtld be built under the project to encourage and equipNGO/CO and FD staff to work witlh the tribal groups and provide adeqttate resources for their fieldoperations in VSS areas witlh large tribal populatioll.
20
9.5 Actions planned at the VSS level
9.5.1 At the VSS level, following actions is envisaged through out the process of preparing, implementingand monitoring activities proposed under the TDP.
* Participatively identify tribal people in VSS area covered under the project. This isparticularly important in VSS areas with mixed population.
* Determine the economic status of tribals, in terms of their landholding, poverty level,livelihiood strategies and dependence on forest land. This will help in planning activitiesunder TDP focused on their economic development.
* Ensure that each tribal household actively participates in the VSS decisions makingprocess. In VSS with mixed population, ensure that all tribals within a VSS area aremembers and that they have adequate representation in its MC.
* Encourage self-help groups (SHG) among tribals to take up economic activities. Organizeseparate SHG for women among tribals so as to benefit from their social and culturalcapital.
* Identify gaps in the infrastrLucture in VSS areas, discuss wvith relevanit governmllentagencies on exploring the possibilities of funding. If required some of the requirements ofsocial infrastructure could be included under TDP.
* VSS should be encouraged to act as a pressure group or lobby in procuring support andbenefits for their tribal members, through the Panchayat and other state bodies.
* NGO/CO and the FD staff at VSS level should make VSS to take initiatives ilstrengthening the livelihood of tribals through their involvement in project activities at theVSS level.
9.5.2 TDP an integral part of Micro Plan: As stated earlier, the over all approach in planninlg andimplementing TDP at the VSS level is to extend programs already inbuilt in the project design on apriority basis to tribal communities unlder the project. Further, all efforts will be made to dove tailgovernment developmenit programs for the socio-economic welfare of tribal groups. In this regard,FD staff at different levels has major responsibilities to ensure that tribals benefit from the activitiesUtnder the project. Specifically, FD staff at the divisional/district level together withl NGO/CO, ShoUIld
ensLire the followv,iG.
+ TDP should be an integral componienit of the Micro Plan, and accordingly ensure that thefinanlcial allocation for activities under the VSS level Micro Plan is inclusive of theproposed activities unlder VSS based TDPs.
+ Identify and amalgamate GOI and GOAP programs/sclhemes meant for tribal areas andtribal communities and examine the means of augmeniting the delivery svstem in theirfavor in VSS villages.
+ VSS will ensure that wage employment opportunities under the proposed activities underthe NMlicro Plan are offered to tribals on a priority basis.
+ Similarly. the income generation activities planned under the project will be extended totribal families on1 a preferential basis
* Design group and houselhold targeted development plans at the VSS level.+ As a part of monitoring and evaluation process, PMU should undertake periodic (half-
yearly) assessment to review the progress of TDP activities.
21
* The Social Specialist at the project (PMU) and FROs responsible for resettlement andTD activities at the district levels will coordinate and monitor the activities of TDP at theVSS level.
10. Approval process
1 0.1 TDP will form an integral part of the Micro Plan and its implementation will be synchronized withother project interventions in a VSS area. The responsibility of approving TDP as part of Micro Planwill be with the DFO. The FRO designated for coordinating resettlement and TD activities at thedistrict level will ensure that TDPs conform to the agreed TD strategy of the project.
10.2 At the project level, the Social Development TD Unit in PMU will be responsible to ensure thatTDPs prepared at the VSS level are in accordance with the agreed TD strategy of the project.However, to have an impartial review of TDP and to ensure that these plans at the VSS levelconform to the agreed TD strategy of the project, an external agency will be engaged to undertakethe review of all TDPs. For this purpose, the external agency will have a person experienced inaddressing tribal issues in the team. The agency will be in place at the time of project effectiveness.
I. Institutional arrangement
11.1 Existing Tribal Development Institutions: The followilg institutions, in additionis to varioussectoral agencies, are actively involved in implementing governiment developiment programsfocused on tribals in the state. It is important to develop mechanisms to coordinate with theseagencies and lik tIp their programs in the implementation of TDP and to ensure overall developmentof tribal commurnities. Some of these linkages have already been identified and their linkagesincluded in TD strategy (see table 7 above).
a) ITDA: These are established for development of tribals in the tribal dominated districts.These agencies function predominantly in scheduled or agency or tribal areas in 8 of the14 districts covered Linder CFM Project. These districts are Srikakulamll, Vizianagaramii,Visakhapatniaim. East Godavari. Khammam, Warangal, Karimnagar and Adilabad.ITDAs are the nodal agencies for integrating all welfare and developmental programsfor tribal development. They fuLnctioni unlder the umbrella of the Tribal WelfareCommissionerate at State Head Quarters.
b) ilfADA: Modified Area Development Agencies are the Government sponsoredorganizationis to look after the development and welfare programs of dispersed Tribalgroups in the areas outside the Scheduled Areas or non ITDA districts. They alsofunction Linder the umbrella of the Tribal Welfare Commissionerate at State HeadQuarters.
c) TRICOR: Tribal Cooperative Corporation is established for chanelizing instittitionialfinancing for Tribal Development. This also functions tinder the umbrella of the TribalWelfare Commissionerate at State Head Qtiarters. The Head Quarters of thisorganization is at Hyderabad.
d) GCC': Girijan Cooperative Corporation has been established by the Government on theadvice of the Tribal Advisory Council as an instrtiment for providing trade and marketsupport to Tribals in marketing their products including NTFP. This organization withHead Quarters at Visakhapatnam enjoys monopoly in trade of NTFP in tribal areas.Over a period of time, GCC has expanded its activities and now it also shoulders theresponsibility of Public Distribution of essential commodities in tribal areas andftlictions as a sotirce of short term credit for agricitiLtre development.
22
11.2 Strategy for implementing TD component under the proposed CFM Project is to work in closeassociation with the above agencies duly supplementing their efforts with Project initiatives. TheProject will facilitate dove tailing of on going welfare measures for the over all upliftment of tribalcommunities in VSS villages. Any direct investment from the Project will be with an aim to fill thegaps. This will require the project functionaries to work in close coordination with the functionariesof the above agencies and ensure proper linkages with government schemes for the over all socio-economic development of tribal communities.
11.3 In order to have focused attention on tribal development under the project, the Social Unit headed bya Social Development Specialist of the rank of Deputy Conservator of Forests in the ProjectManagement Unit will coordinate with the relevant government departments and agencies. This Unitwill also be responsible to monitor the preparation and implementation of TDPs at the individualVSS level.
11.4 At the district level, these plans will be reviewed by the the Forest Range Officer designated forthis purpose (including resettlement) and will be approved by the DFO at the divisional level.
11.5 The preparation and implementation of TDP is the responsibility of individual VSS facilitated by theVSS Advisory Council, facilitating NGO/ Community Organizer (CO) and the field level staff of FD(FBO and FSO). These plans will be an integral part of the Micro Plan which form the basis forproject interventionis at the VSS level. See Annex VI for details on institutional arrangement forpreparing and implementing TDP under the project.
11.6 Inter-sector coordination: Inter-sector coordination will be ensured at the Project, district anddivisional levels through PMU, District and Divisional/ ITDA level Forest Committees (see section16.1). At the Project level, the State level Forest Committee chaired by the Principal Secretary,Forests. GOAP, will ensure the required coordination with the concerned departments. At VSS level,the field staff of FD with support from NGO/CO/ Women community volunlteer and VSS AdvisoryCounlcil will coordinate with PRIs and government agencies at the field level.
| GCC | PMU / Other Departments
| SHG | \ / | District Forestry
|Commissioner |Vi o<
12. Capacity building to handle TD activities
12.2 Sinice most of the staff in FD at all levels (state, district, divisions, range and VSS) and functionariesof NGO and CO will have little exposure to tribal issues, under the project they will be trained inskills required to handle TD activities. Besides, VSS management committee members and otherfield level functionaries of Zilla Panchavat, departments of tribal development and rural developmentassociated withi the project will also be trained on different aspects of TD and to address tribal issuesrelated to the project. The training modules to be developed will focus on:
+ policy regulations relating to tribals* strategies and procedures in TD unider the project* unidertaking social impact assessment and identify issues related to tribals* consultationl with tribals in preparing Micro Plans and TDPs* preparing TDP* ensuring support for socio-development of tribals* dovetailing government schemes for the socio-economic development of tribals* data base management for M&E of TD programs
12.2 A consultant will be engaged to assess the training needs and prepare training modules and material.Training will be organized both at the state and district levels. Each training module will be repeatedto cover a large number of those associated with TD activities under the project. Besides, customizedtraining will be organized in reputed training institutions, both within the state and outside for FDstaff associated withi TD activities under the project.
12.3 In addition, exposure visits will also be organized for the staff of FD to project sites within the stateand outside wvhere TD programs are being managed successfully.
24
12.4 Good practices will be identified during preparation and implementation of TDPs under the projectand these will be documented and disseminated widely among project functionaries, NGOs, COs andVSS. This will be coordinated by State Forest Academy, Dullapalli in FD.
12.5 An external agency for Monitoring and Evaluation (M&E) of the project will also monitor TDPimplementation. This external agency will also assist FD in developing a data base; train FD staff, atthe state, district and divisional levels, in managing the data base and its periodic updating; and assistin preparing data formats and monitoring reports.
13. Grievance Redressal mechanism
13.1 In order to address issues related to tribals, a grievance redress mechanism is already in place atdifferent levels (at VSS Forest Section, ITDA/DFO and District levels). Constitution of thesecommittees is attached as Annex 111. These committees will be strengthened by ensuring their regularmeetings and monitoring the actions taken on their decisions. At the VSS level, its ManagementCommittee and VSS Advisory CouLicil will help resolve any grievances of tribals with regard toproject activities. At the Forest Section level, grievances will be addressed by the FSO. ForestCommittees (witlh representations from VSS. Panchayat Raj Institutions, NGOs and concerned linedepartments) will also help finding solutions for issues that are not resolved satisfactorily at the VSSand Forest Section levels. Besides, the FD staff and NGO/CO will also assist the tribals in resolvingtheir problems by referring them to the relevant agencies. The NGO/CO will record the grievances ofthe tribals and present the same In the forest Committees.
14. Monitoring and Evaluation:
14.1 Internal monitoring: M&E of TD activities planned under TDP is necessary to monitor theprogress, identify bottlenecks, take up corrective measures and thus ensure adequate and timelyimplemilentationi of TDP at the VSS as well as at the Project level. This provides adequate feedback tomake necessary chaniges in the plan and update the database. The monitoring will be both internaland external. At the project level, the PMU through the Social Development Specialist will carry' outconvenitionial interilal monitoring focusing on physical and financial aspects. At the district anddivisional levels, thils responsibility lies with the DFOs and the Social Development Specialists at thedistrict level.
14.2 At the VSS level, along witlh representatives of tribal commuinLities the MC of VSS wvill beresponisible to moniitor the implementation of TDP. In this process, the FD functionaries at the fieldlevel and NGO/CO will assist VSS.
14.3 External monitoring: An external agencyv engaged to monitor the project implemenltationi will alsomonitor the implementation of TDP component. For this purpose, the agency will have one personexperienced in tribal issues in its team. This agency will also develop reporting formats to be used atdifferent levels. These formats will have compatibility with the formats used for computer based database management. The external M&E agency will also be responsible for developing data base andits periodic updating. This agency will also train FD staff at the state, district and divisional levels, inmanaginig the computer based data base and its periodic updating. The external M&E agency willsubmit its periodic monitoring reports at half yearly interval and two evaluation reports - projectmid-termn and end evaluation
14.4 Monitoring indicators: A set of indicators have been identified and presented in Annex IV.However, the external M&E agency for the project wlhiclh will also be rnonitoring the
25
implementation of TD activities under the project will update the monitoring parameters anddevelop monitoring formats to be used at different levels
14.5 Appropriate monitoring formats will be evolved for internal and external monitoring. Monitoring ofall TD activities will be on a quarterly/half yearly interval. The physical and financial achievementswill be measured against the targets fixed and milestones established and will be monitored througha computer software package along with other Project activities.
15. Implementation schedule
15.1 The immediate activities that are planned are establishing a Social Development Unit in PMU at thestate level and posting of Social Development Specialist in PMU. At the same time, in all thosedistricts where project activities will be initiated in the first year of the project, an FRO in eachdistrict will be designated and made responsible for TD activities . NGO/CO will be in place beforethe VSS initiate social impact assessment and prepare VSS based TDPs. Before the VSS initiates thisassessment, training programs will be organized to equip the field staff of FD and functionaries ofNGO/CO with required skills. No VSS will uLndertake social impact assessment unless training isimparted to its MC members on the process. Similarly, no income generation activities will beestablished unless the required training has been organized for the tribal families identified to besupported under TDP. The detailed implementation schedule is shown in Annex V.
16. Costs and Budget
16.1 All activities identified under TDP at VSS level will be included in the Micro Plans, whiclh will beprepared through participatory process. Annual plans will be drawn up by the VSS in consultationwith the VSS Advisory CoullCil based on the availability of budget under the project and fundsavailable with respective sectors/agency. While all costs included under TDP will constitute anintegral componenit of the Micro Plan, at the project level, other costs related to TDP activities(including capacity building) will be part of the overall budget of the project. For activities identifiedto be dovetailed from other departments will forn part of the budget of the respective sectors andwill be coordinated by thle ITDA. Thlus. the finanicial requirement under the TDP component of theproject pertainis to activities like, capacity building, exposure visits, training for economic activities,coinmlunLit' asset development and income generating activities (at botlh individLial and group levels),if any. Budget required for engagingc NGO!CO and Women Community Volunteers, engaging, M&Eagenccv and other establishment cost wvill come from other components of the project.
16.2 The cost items and norms used in developing the budget for TDP are as follows:
a) Awareniess campaigns will be part of Micro Plan exerciseb) VSS ulldertaking social impact assessment and preparing TDP - budget will be part of
the preparation of Micro Plans included under RAPc) Field exposure trips for ST members at Rs 1,000 per VSSd) Capacity building (of FD staff. NGO/CO/Woman Volunteer, MC members of VSS, and
other village level government functionaries concerned with TDP activities) at Rs 5,000(Rs 1.000 for VSS members and Rs 4,000 for FD staff and other functionaries) per VSS
e) Promoting economic activities (including training) at Rs 50,000 per VSS.f) Providing additional infrastructure at Rs 50,000 per VSS
26
g) Contracting a HRD agency to assess training needs, and develop training modules andmaterials - budget already inbuilt under RAP
h) Office establishment - included under the projecti) Contingency - in built in the project cost
16.3 The total budget for the TD component works out to Rs 321 million, details of which over the projectperiod is presented in Annex VII.
27
Annex ISocio-economic status of VSS covered under SEA
District VSS Male Female SC ST Others TotalChittoor Chittecherla 135 133 45 41 182 268
Languag-e . Tlhe major language spokeni in the sample VSSs area was Telugu. Howvever. in Srikakulamii andVisakhiapatinamil it was dominiated by vernacular tribal dialect. In Srikakulam, the local Telugu language wasmixed with Oriva language. In Chittoor District one of the VSSs (Chitticherla) had the dominationi of Tamillanguage.
Socio-economic:: In tribal belt of sample VSSs, the families were predominantly nuclear. Joint familysystemn was found in plain area VSSs. Men were the decision makers in the family. As far as family incomewas concerned, adult female was mostly contributing it. Literacy levels were very low in tribal dominatedVSSs. Howcver, it was slightly better in plain areas. Particularly female illiteracy was alarmingly high.Agriculture, NTFP collection and wage employment are the principal sources of income for the VSSmembers.
Mlarriage and Cfustoms . Among most of the VSSs families, irrespective of plain or tribal areas, traditionalsystem of marriages were followed. The marriage ceremony ranged from one to three days. Three daysmarriage customs wvere found among tribals. Cross cousin and maternal uncle - niece marriages wereprevalent in the plain areas. In tribal belt of Srikakulam, VSSs members were very particular of gettingmarried in their own community. They go in search of spouse even to the neighbouring state of Orissa.Inter-caste marriages were not found in the study area. However, dowry practice was quite prevalent in the
28
area. The system was that the bridegroom with family goes to the bride's house, pay dowry, arrange feastand bring the girl.. In the tribal belt, polygamy was observed in some of the cases. Among tribal, wearingof ornament by female was very common.
Land Holdings: The following observations are made:* About 50 per cent of VSS households are small and marginal farmers.* A very insignificant big farmer households holding more than 2 ha. is noticed.* A majority of sample land owners owned dry lands and depend on rains for agriculture.* More than 90 per cent of small and marginal farmers found working as agricultural and non-
agricultural labourers since the income from agriculture is inadequate.* These marginal and small farmers including landless get wage - employment in VSS forest during
the season which generated additional employment.
Crop and crop productivity . The crop pattern of the and productivity of the different crops are presentedbelow:
* The major agricultural crops raised by VSS members are Sorghum, Ragi, Pigeon pea, Groundnut.etc.
* Except few, a majority of the members were cultivating single crop and follow traditional practices.* A very few, particularly in plain areas, had adopted improved practices.* The crops grown by majority of the members were uneconomical, the reasons being poor soil
fertilitv, lack of irrigation facilities and lack of access to extension for technical knowledge.* Almost all VSS members were Using the cereal crops produced for domestic consumption.* In the tribal belt, farm produce is generally used for bartering for other domestic needs suchi as oil,
cloths, pulses. vegetables etc.* On an average, paddy yield per ha was 750 kg. and sorghum 500 kg. The yield of Ragi was around
400 kg per ha. In case of pulses and other crops, the yield is quite low i.e., less than 100 kg/ha inmost of the cases.
Liv'estock: The stcatus of livestock position of the area is as follow* An analysis of the cattle heads owned in the VSSs area indicated that majority of these cattle were
noni-descript particularly in tribal belt, whiclh included cows and buffaloes. In economic terms,rearing these animals was non-remunrerative. In tribal belt cows and buffaloes were being used in theplace of bullocks for cultivation and other purposes.
* In thc studLv area of 20 VSSs the population of cows and buffaloes is 5879 and 6465. respectively.Sheep and goat rearing is done as traditional practice.
* In the studv area major sources of fodder were crop residue, grass grown on community lands andforests. Majority of cattle owners could not meet the fodder demand from own field dependilgmostly on community land and forest. Stall feeding was rarely observed.
Houtsing .: Majority of the VSSs households possessed thatched and semi-permanent houses. Hlowever, a fenof the members also had pacca houses. HIousehold latrines were rarely found. Open defecation was is thepractice of most of the VSS members.Others:
* Except a few, all VSSs habitations are either connected with Tar Road or Metal road* All the VSS habitations are electrified.
29
Annex IIDetails of stakeholders' consultation
As a part of the preparation of A.P. Community Forest Management Project, workshops have beenheld with the various stakeholders to elicit their suggestions and recommendations for the future project. Theagencies that have held these workshops are: a) NIRD Hyderabad, the consultant appointed to conduct theSocial and Environmental Assessment, b) M/s OM Consultants, Bangalore appointed to conduct InstitutionalAssessment Study, c) Center For World Solidarity, Hyderabad an NGO and d) the Forest Department. TheNIRD lheld two state level workshops and three regional workshops, OM consultants held one state levelWorkshop, Center for World Solidarity held one state level workshop and four regional workshops and theforest department held two regional workshops. Besides, as part of tribal study under SEA, detaileddiscussions were held with tribal communities and their village leaders, representatives of local bodies,knowledgeable persons, school teachers and field functionaries of forest and tribal welfare departments.Discussions were also held with district level officers of revenue (including District Collector), ruraldevelopment, forest and tribal welfare (including ITDAs). The following table provides pertinent informllationonl these workshops.
Workshop Place Date Districts Participants Totalcovered F _ Participants
VizianagaramState Level Dullapalli 2.11.01 All districts 22 2 6 35
l ~ ~~~~ SFA _1Workshops conducted by OM consultanitsState Level | Dullapalli 31-8- All districts 60 60Work shop 2SEA |__001_l_l_l_l_lWorkshops conducted by center for world solidarityState level Hyderabad 18-07- All districts 14 43 26 95
NelloreWorkshops Conducted by the Forest Dep artmentRegional Warangal 22-11- Telangana and 65 1 65Work Shop 2000 Andhra
RegionsRegional Tirupathi 30-11- Rayalaseema 46 _ 46Workshop 2000 Region _
There were a number of issues, which were deliberated upon, and recommendations made for the futureproject. Some of the important issues relevant to Tribal Development discussed and recommendations madeare given below:Issue: Shifting Cultivation and Encroachments.Shifting cultivation is a major agricultural practice in the tribal belt of the State, especially in North Coastaldistricts and in Adilabad. The practicc has by now become more or less settled cultivation. Dissuasionthrough legal action has failed to stop the practice.Recommendation:It was generally felt that the shiftinig cultivation and the encroachment into the forest for cultivation are notgood practices and they needed to be discouraged. The shifting cultivators and the encroaclhers into the forestfor cultivation should be motivated to leave the practice and surrender their lands encroached UpOIn forcultivation. While doing so, it is was felt that this is an issue dealing with the livelihood of the poor andtherefore needs a holistic approach. It was felt necessary to widen the livelihood base of these peoplethrougL1 introducing various suitable alternate income-generating activities and upgrading their skills,including promotion of improved agricultural practices on private lands to restore the economic well being ofthe affected families.There are 5 tvpes of families who are normally affected wheni dealing with encroachment into forest lands forcultivationi. The types of the families likely to be affected and relief measures suggested are:
1. Families wvith landholding outside project losing encroached land:Relief measure suggested: - Assistance to improve farming in landholding outside project areathrough irrigation, improved farm inputs, and other agriculture support or the affected families willbe provided support, if opted, to take up income generation activities.2. Families entirely dependent on encroached land
Relief measure suggested:- Land for land (in proportion to loss up to a maximum of economicholding), where ever government revenue or ceiling surplus land is available and acceptable. Suchfamilies will be assisted to improve farming by providing farm inputs, and other agriculture supportand access to agricultural credit or affected families can be provided support, if opted, to take upnicome generation activities3. Families havinig other sources of incomeRelief measures suggested:- Affected families will be provided financial support to take upadditional income generation activities
4. Families losing housing
31
Relief measures suggested:- Allow the salvage material to be carried to the new site. Providealternate site or cash in lieu of it. Housing under weaker section housing scheme or a housingconstruction grant. Provide for transport for carrying household salvaged material.
5. Families not willing to vacate encroached landsRelief measures suggested:- Promote plantations on encroached lands involving families dependenton such lands. Sharing of benefits from these plantations will be decided by the VSS in consultationwith such families. Provide financial assistance to take up income generating activities to supplementearnings from such lands.
Issue: Involvement of the Tribal Communities in Forest Development and Protecting their Interest inthe Process:The Tribals are an integral part of the forests. The livelihoods of the Tribals are intertwined with the forests.No forest development and tribal development can take place without addressing the problems of both forestsand Tribals. In the process of implementation of the project the interests of the Tribals are likely to beadversely affected in certain areas. Following are some of the areas that need special attention under theproject for the mutual development of the Tribals and the forests:
1. Representation of Tribals in General Body Meetings:Educate the Managing Committee of the need for involving all the Tribals. CondLIct frequentmeetings of the General Body.2. Representation in Managing CommitteeEducate The General Body of the need for involving required no. of Tribals in the ManagingCommittee meetings. Conduct frequent Managing Committee meetings. Impose penalties if themembers do not attend the meetings continuously.3. Participation in mixed groupsEducate the General Body and Managing Committee On the need to involve the Tribals to activelyin the meetings. Insist on required quorum and encourage freedom of expression. Give dueconsiderationi to issues raised by STs,4. Dependence on forests - Podu CultivationEducate the Tribals on uLnsustainability podu cultivationi to wean away the tribals from practicingPodu cultivation. Ensure alternate livelihoods for the Tribals, wlo stopped Podu cultivation.5. Dependence on forests - Firewood collection by head loadersReduce demanld for firew ood by promoting alternate fuel sources, Provide alternate livelihoodresources. Take tip Energy plantations6. Dependenice on forests - NTFP collectionResolve ownership and right to collection witlh reference to Panchayat Raj Institutionis and otherTribal villagers outside VSS communLity. Resolve common oNvnership of individual collectionswithiin VSS. Frame rules under relevant statute for resolving ownership issues with Panchayat RajinstitUtions and other Tribals villagers outside VSS community, Work out methodology for sharing
of benefits among- VSS members. Educate the Tribals on value addition, storage and post harvestprocessilg of the N. T. F. P.7. Dependenice on forests - Domestic needsFormalize an arrangement for meeting domestic needs of VSS members.
Issue: Unregulated GrazingThe policy of unregulated grazing has caused considerable damage to the forests. There is uirgent need forsuitable measures for controlling grazing.Recommendation:
32
The project team suggested for a suitable grazing policy. However, during discussion in the workshops, itbecame evident that the grazing policy must have a broader view of the problem. Along with grazingmanagement, it should specify the scope for augmenting fodder resources in and around forest areas and alsosteps to upgrade the cattle breed for maximizing production from these cattle.
Issue: VSS and Panchayat Linkages:In general in all the workshops it has been expressed that VSS Should function as an independent institutionmaintaining its autonomy but some linkages are to be maintained with Panchayats. After the 73rd
Amendment Act, Panchayats in the scheduled areas are given the ownership over the minor forest producefrom the local forests. This provision may lead to conflict between VSS and panchayat affecting the projectof VSS's autonomy.Recommendation:To establish linkages with Panchayat the president may be invited to the VSS meetings. The VSSChairperson maybe appointed as ex officio member of the Panchayat. To avoid the likely conflict betweenthe Panchayat and VSS over the use of minor forest products within the Panchayat rules maybe framed underthe Panchayat Raj Act duly safeguarding the interest of the VSS. Sometimes conflict is the internaldynamics of the village society. Solution to these conflicts may be left to left to VSS's discretion.Unwarranted intervention by FD/NGO may undermine the capacity of VSS and add to their dependencysyndrome. Local skills and initiatives should be developed to deal with conflicts as and when they arise,rather than institutionalize such management.
Issue: Conflicts in Sharing of the Produce from the Final Harvest:Ini many VSSs, there are both active and passive members. After the final harvestinig of the forest, thepassive members are likely to claim share in the revenue. It may lead to conflict and in the event of equaldistribution, the share of active members (particularly in large VSS) may not be so attractive to sustain theirinterest in protection and management of forests.
Recommendation:M9lode of benefits distribution among the members needs to be left to the discretion of VSS. However, incase of large VSS with relatively small area protected by it, care needs to be taken so that the active membersget more concerted efforts to persuade the passive members to play active role in protection of forests. Incase of extreme situation, the VSS can impose sanctions, fine on them and even cancel their membershipdepending on the merit of the situatioln.
Issue: Increasing the Income Levels of the VSS with Low NTFP PotentialIn some cases, it is found that NTFP species are relatively less. The VSS members urge for growinghorticultural species in the forest area to compensate their income. It is speculated that in the absence of anyeffort to compensate their opportunity cost, the VSS members may not protect forest effectively once thewage employment is seized.Recommendation:Since the VSS members are already in economic stress, their opportunity cost for protecting forests needs tobe safeguarded. As growing of horticultural crops in forest area is not permissible, they may be providedwith high yielding/clonal seedlings of NTFP species for quick return.
Issue: Monopoly of Girijan Cooperative Corporation on the NTFP:The Girijan Cooperative corporation has monopoly over the pLurchase and trading of majority of minor forestproducts. This monopoly should be removed and the VSS should be free to sell their minor forest products atremunlerative prices.Recommendation:
33
This issue needs to be studied in greater detail along with the other stakeholders involved and suitablemeasures initiated to safeguard the interests of VSS.
Issue: Empowerment of Women and Increasing their Participation in the VSSWomen's participation in VSS activities is relatively low. There is need for their capacity building andemnpowerment so that they can take active part in the whole process.Recommendation:Women Community Volunteers are observed to be effective in motivating and increasing the participation ofwomen in JFM programme. At present, few WCVs are involved in JFM. Their number needs to beincreased. To ensure effective and active participation of women in VSS affairs, it is suggested to have avice president in the Vana Samrakshana Samithi and either the president or the vice president can be awoman. In the managing committee the percentage of women members may be increased to 50 percent from30 percent as of now. The vice president can also be made a signatory for the joint account so that womanplays a major role in financial management. Single woman and women belonging to land less class shouldbecome automatic members in VSS. Field officials of forest department and NGOs are to be sensitized aboutwoman's involvement.
Issue: Maintenance of Joint AccountUnder the present practice, VSS secretary (FSO of FD) and president jointly operate banki account.However, in many cases there are allegations that the secretary does not give due importance to the presidentin the handling of VSS funlds. This sometimes culminates into conflict between them.Recommendation:The tendency of the secretary for hanidling funds unilaterally emanates from the fact that he is responsible toFD for fund management. Thus, the present arrangement for fund management needs to be made moredemocratic and less bureaucratic. The tasks of financial management, record and bookkeeping should bevested with VSS. This will not only make the VSS more accountable. but also relieve the overstrained staffwho can concentrate in their normal duties and continue facilitating services to VSS. Again it is suggested tohave two Joint accounts one for the amounts received from the government and the other for the amountsgenierated internally by the VSS. For the joint account meant for the funds received from the government theforest official, the VSS Chairpersoni and the vice chair person can be the joint account holders. For the jointaccoullt meant for the funds internially generated in the VSS the chairperson and the vice Chairperson can bejoint accoullt holders.
Issue: Conflict over Boundary Demarcation.In some cases there is conflict over bouLndary demarcation between the VSS, each one claiming the other'sarea as within their v illage limits.
Recommendation:The forest area unlder the control of the VSS is generally defined on1 a sketclh map. Often, these are not welldefined or demarcated on the groLlild. There is need to clearly define and demarcate the bounldaries of eaclVSS area to avoid disputes betweeni the villages .Issue: Danger of Politicization of VSSWith greater flow of funlds to VSS and also the integration of VSS activities with the general villagedevelopment, the VSS president will gain importance in the village society. It may lead to politicization ofthe institutioll of VSS. As a result, the VSS may loose its integrity.Recommendation:This is a real challenige for FD as facilitating agency. It needs to be proactive in this matter. Specificmeasures are to be spelt out not only to protect the integrity of the VSS from the intrusion of politics, but alsoto ensure that the focus on benefits to the poor and women is not dilutedIssue: Awareness, about Transparency, Sharing, Reinvestment and Financial Management
34
The VSS members are not adequately aware of aspects like equity, transparency, sharing and reinvestmentmechanisms, financial management, etc.Recommendation:Simple guidelines for CFM in vernacular language need to be prepared and widely disseminated. Frequentmeetings and sharing of information and appraisal by the VSS should be ensured. Joint work with thevillagers gives them opportunity to elicit information and enhance level of transparency in decision-makingand implementation process apart from being an effective means of concurrent process monitoring.Issue: Solving of Local ProblemsVSSs are inadequately equipped to handle local issues due to a variety of socio-economic factors. This hasresulted in preparation of problems weakening the basic fabric of the VSS.Recommendation:It is not possible for the FD to protect the VSS from all adverse situations. They must be encouraged tostand on their own and solve their problems without assistance from external agencies outside theirimmediate environment. This calls for promoting networking among the VSSs on regional basis.
Issue: According legal status to VSS.The VSS are formed right now are functioning under the executive orders of the government. To improvetheir participation, Performance and confidence levels the VSS Need to be given legal status.Recommendation:The A.P. Forest Act needs to be suitably amended to provide legal status to the VSS.
Issue: Capacity Building of the VSS Members, Forest Staff and NGOs.In all the workshops there was a general feeling that the capacity of the forest staff. VSS members and NGOsShould be improved for the proper and effective management of the VSS.Recommendation:Training programs in raising medicinal plants, nurseries, estimating the potential of forest produce andmarketing, grafting of other and other species, various silvicultural operations, soil and moistureconservationi works, accounting procedures of the VSS, value addition and storage practices cf the NTFP andmedicinal plants etc., are to be organized to build Lip the capacities of the VSS members, forest staff and theNGOs. In addition to the centralized training programs in the A.P. Forest academy at Dullapalli, trainingprograms may be organiized in the circles and the districts also. Exposure trips to other successful VSS bothwvithin the State and oLtside the state may also being organized. Videotapes of the successful V. S. S. may beshowni in other V. S. S. for inspiration.
35
Annex IIICoordination arrangements and Grievance redress mechanism
At Village level:
a) For each V.S.S. there is an Advisory Council comprising of the concerned Forest Section Officer,Forest Beat Officer or Forest Assistant Beat Officer, the Panchayat Sarpanch, representative of theVillage Tribal Development Agency in scheduled areas (to be nominated by the ITDA), the VillageAdministrative Officer, the NGO actively involved in assisting the V.S.S., and Village SchoolHeadmaster/Headmistress.
b) The Panchayat Sarpanch shall chair the advisory council meetings. If for any reason he / she isunable to attend the meeting the Forest Section Officer shall preside over.
c) Constitution of the advisory body shall be the responsibility of the Forest Range Officer.d) Convening meetings of the Advisory Council shall be the responsibility of the Forest Section
Officer. Advisory council meetings should be held to facilitate their timely input into micro-plan andannual plan preparation and evaluation and also to coordinate the activities of other departments atV.S.S. level.
e) The Advisory Council will review micro-plans and annual plans and advise the V.S.S. on strategiesand available resources for implementing them.
f) The advisory council shall meet as often as required.
At District level:
A District Forestry Committee has the following,1. District Collector Chairman2. Project Director District Rural Development Agency Member3. Project Officer Integrated Tribal Development Agency Member4. Representative of GCC at District level Member5. District Tribal Welfare Officer Member6. Executive Director Dist. S.C.S.C. Society Member7. Joilt Director Agriculture Member8. Joint Director Animal Husbandry Member9. All the Divisional Forest Officers in the district Member10. Three NGOs (Including at least one Woman delegate; Member
to bc nominatcd by thc AP NGOs Committee on CFM)I1. 5 V.S.S. members nominated by the district collector Member
(at least 3 members shall be women)Head quarters Divisional Forest Officer will be the convener. The tenure of the nominated members shall beone year.The responsibilities of the District Forest Committee will be as follows;(a) The District Forestry Committee shall review implementation of Community Forest Managemenit and
provide direction to the Forest Department and other departments in the holistic development of villagesand hamlets where VSS are operating and in adjacent villages and hamlets that may be affected by theimplementation of CFM.
(b) The committee shall also ensure that there are no duplication of efforts by the various departments.(c) The District Forest Committee shall convey any observations or concerns that require state-level
intervenition to the State Level Forest Committee.(d) The District Forestry Committee shall meet atleast once in three months.(e) I[he District Forestry Committee shall have powers to remove any member of the Managing Committee
from the Managing Committee who is convicted of Offence(s) under any of the Forest Acts and Rulesthere under and / or any other Offence punishable under any law, or to cancel recognition any Vana
36
Samrakshana Samithi majority of whose members are convicted of having committed Offence(s) underany of the Forest Acts and Rules there under and / or convicted of any other Offence(s) punishableunder any law. The District Forestry Committee shall have powers to cancel recognition to anyV.S.S.which does not function effectively. The decision of the District Forest Committee shall be final.
At the ITDA level
At ITDA level, the committee will have the following constitution:I. Project Officer ITDA Chairman2. Two NGOs (atleast one shall be woman) Member (To be nominated by the C. F.)3. Ten V.S.S. members (atleast four shall be women)Member (To be nominated by the C.F.)4. GCC Representative Member5. Sub DFO/ DFO at ITDA headquarters Member Convener
This committee is responsible for:a. Review the implementation of C.F.M activitiesb. Coordinate the activities of the various Government departments to ensure holistic
development and avoid duplication of works.c. Resolve inter V.S.S. conflicts and conflicts between the V.S.S. and non V.S.S. conflicts.d. The committee shall meet once in three months.
At Forest Division level:1. Divisional Forest Officer Chairman2. One representatives each from Agriculture,
Animal Husbandry, Rural development (DRDA),Tribal Welfare, ITDA, Social Welfare, District S.C.Society, GCC, NEDCAP Members
3. Three NGOs Members4. 5 VSS chairpersons. (atleast 3 women) Members
This committee is responsible for:I . This committee shall meet every month and monitor functioning of VSS2. Implementation of decisions taken in the District Forestry Committee and other meetings.3. Ensure coordination of all concerned departments and agencies for proper fu,ctioning of VSS.
At State Level:The State level committee has the following constitution. It coordinates the Community Forest
Managemenlt.1. Prl. Secretary Environment, Forests, Science and Teclhnology Department Chairman2. Pr. Secretary Social Welfare or his nominee Member3. Sec. Panchayat Raj and Rural Development Member4. Managing Director A.P.F.D.C. Member5. Commissioner Tribal Welfare Member6. Director Animal Husbandry Department Member7. Commissioner Agriculture Department Member8. Managing Director G.C.C. Member9. Nominee of Secretary Finance Member10. Director Women and Child Welfare MemberI I. NGOs 2 Nos. (nominated by the AP NGOs Committee on PFM) Member12. Representative of Ministry of Environment and Forests (GOI) Member13. Prl. Chief Coniservator of Forests Convener
37
38
Annex IVMonitoring Indicators
Items Indicators Method to Frequency Agencyfollow
Economic Income: Reports Half yearly SDS andConditions * Project related from external
* Independent means but NGO/CO, M&Eassisted by the project FSO/DFO agency
Housing: Changes in qualityover a period of time Reports -do-(No.) from
Changes in occupation (No.) FBO/FSOSkill improvement (No.) andCheck in migration (No.) NGO/COEconomic activities established(No.)
Social Representation in VSS Reports Quarterly SDS andConditions Representation in MC from external
Participation in VSS meetings NGO/CO, M&EParticipation in project FBO/FSO agencyactivities
Half yearlySclhool enrolment ReportsHealtlh and morbidity fromSocial infrastructure: NGO/CO, -do-electrification, drinking water, FSO/DFOhealth coverage, access tovillages, etc.
Process Social impact assessment Reports Quarterly SDS andfollowed completed (No. of VSS) from external
Note: Out of 5000 VSS selected for assistance in the Project, tribal population is significant ( more than 15% in 2917 VSS.Forecasting has been donc rounding the number to 3000 VSS.
