Chapter-4

The Constraints and the Limitations of the Programme

There were a number of constraints observed and deficiencies identified in the implementation process and management of the plantation programme in different districts of the state. Based on the information and interviews conducted with the forest officials, JFMC members and beneficiaries as well as experiences of evaluation team during field visit it was found that overall performance of plantation programme in the state was good and progressing in the right direction. But at the same time, it was also observed that the plantation programme was not able to achieve its optimum output. The important constraints and limitations of the programme have been discussed below.

 

Low level of Awareness among JFMC Members and Community

Ü  It was found that the level of awareness among community people was poor, which was a common factor in all the districts of the state. It had adverse impact on the process of implementation and smooth progress of the current plantation programme. Quite often, forest officials had apprehension and distrust in their mind while delegating the work to community people. At several occasions the JFMC members miserably failed while executing the work on their own. The low level of awareness has also been affecting the process of decentralization of forest management. The community people often indulged into illicit cutting of green trees for petty gains. Such activities were quite frequent in Kolhan division as expressed by A. K. Sinha, DFO. In some cases even JFMC members, foresters and forest guards were also found to be less aware about the different aspects of plantation programme. 

Unrest due to Presence of Naxalism

Ü  All the districts of Jharkhand have been facing the brunt of different forms of naxal outfits. In the recent past, intensity and frequency of naxal related incidents have increased in the entire state. Innumerable incidents inflicted by different versions of naxals occurred at several locations in the state and forest department was also affected by them.

 

Ü  Most of these incidents adversely affected the confidence of field level forest staff, JFMC members and community people. DFO, Sri A. K. Singh of Khunti division said that the protection and maintenance of plantation area was badly affected due to naxal movements in Khunti district.

           

Ü  Gumla district has also been affected as different faction of naxals has established their strong footholds in the entire district. Once district of Simdega was almost untouched from the incursion of naxals but presently naxal groups have established their grip at different locations in the district.

 

Ü  The districts of Chatra, West Singhbhum, Palamu and Garwa are the worst affected by naxal activism. During the field visit a member of evaluation team faced the ugly face of naxalism. The smart handling and methods of persuasion by field level forest staff of Simaria range at South Chatra forest division successfully handled this situation.

 

Ü  In the districts of Palamu, Garwa and Latehar naxal groups like TPC and MCC have been at fore front in creating havoc every now and then. Even the movement of JFMC members was restricted. In July 2007, a range office was burnt and later forest officials were attacked by these elements in Garwa district.

Ü  Although, the forest officials have always exuded confidence and rarely bowed down to such pressure tactics and incidents by naxals but ever looming danger have deep impact on their mind. Under these circumstances the quality of plantation programme work as well as and its out put was affected

 

Acute Shortage of Forest Guards and Foresters

Ü  Shortage of staffs at field level especially forest guards and foresters has been a major issue faced by all the forest divisions in the respective districts. This issue was raised by most of the forest officials during interviews and some of them were quite dismayed, as this long standing demand could not be fulfilled.

 

Ü  The DFO of Saraikela forest division, Sri D. Venketeshwaralu, was of the view that acute shortage of front line staff like forest guards and foresters had been hampering the overall activities. At a number of sites plantation programme showed poor results due to such shortage.

 

Ü  In West Singhbhum, the officials expressed that the shortage of manpower is one of the major constraints in majority of the forest divisions, especially during the plantation season. It was also revealed that the implementation of a part of NREGA programme by forest department aggravated this problem. Similar concern was expressed by Sri A.T. Mishra, DFO, Dalbhum division.

 

Ü  In Garwa district also the shortage of forest guards and foresters affected the output of the plantation programme.

 

Lack of Infrastructure and Basic facilities among range offices

Ü  It was reported by forest officials and also observed by the evaluation team, as most of the forest ranges were facing the inadequate availability of infrastructure and basic facilities like vehicles, telephone connections, fax, internet, suitable office premises and accommodation to staff, etc. The field level forest staff was of the view that traveling allowances paid to them were inadequate.

 

Ü  These issues were specifically raised by forest officials in the districts of Kodarma, Latehar, Jamtara, West Singhbhum, Simdega, etc.

 

Frequent Transfer and Posting of staff

Ü  The matter of premature transfers and postings was raised by a significant number of forest officials. Some of these officials were quite unhappy as they had to face this situation more than one occasion. The forest officials in Deoghar district were of opinion that untimely transfer had adversely affected their work output.

 

High Cattle Population and Unprotected Grazing

Ü  Casual grazing by domestic animals in plantation areas has been a chronic problem in the entire state. In rural areas community people were keeping flock of cattle with little purpose. These cattle were left unattended in the forest areas for grazing. In Saraikela the officials were of the view that high cattle population was putting excessive biotic pressure on forest resources.

 

Inadequate Duration of Protection and Maintenance

Ü  The normal practice of three years stipulated period of protection and maintenance of a newly plantation area has been proving inadequate. Even the current allocation of fund has put strain on implementing agency due to ever increasing inflation leading to rocketing prices of all kinds of goods and materials.

 

Ü  These issues were raised by a number of officials in different districts. They opined that in three years duration, several species hardly reach to a stage from where they could not grow well without proper protection and maintenance.

 

Inadequate Monitoring and Evaluation System

Ü  During the course of evaluation of this project it was observed by the evaluation team that current system of monitoring and supervision of plantation programme was not proving fruitful as its effectiveness and impact was not far reaching. Similar views were expressed by some forest officials.

 

Limited Fund for Interface activities and High Expectation of Community

Ü  As per the stipulated provision of state plan plantation schemes 15% of the total allocation of fund was utilized for the creation of assets under interface. It was observed that under a large number of JFMCs with small plantation area, this amount was very low to create a decent infrastructure. In a number of cases, the community people got petty items like carpets, chairs, tables, repairs of tank, stair cases, LPG gas light, etc. in the name of interface assets, which were nothing but a mere lip service.

 

Ü  Most of the JFMC members and community people have high expectation from the forest department for help on economic front. Limited allocation of fund did not give much scope to forest department in this regard. Some JFMC members with strong feelings for forest protection required regular monetary support or immediate incentives to involve them in protection and maintenance work. Even they did not agree for full time duty without regular payment.

 

Interference of Local Influential Groups

Ü  The incidence of interference by some influential groups during the selection of JFMC officials, creation of interface assets, etc. had adversely impacted the plantation programme. In Simdega district, there was pressure from some political groups to elect a certain person of their choice as JFMC president. It was a blatant intrusion in the local level development programme by such elements.

 

Delay in Release of Allocated Fund 

Ü  It was also reported by some officials especially RFO, Chakulia under Dalbhum forest division and also some officials in Dumka district that late release of allocated fund affected the plantation programme.

 

Inadequate Planning in Seedlings raising at Nursery

Ü  Some of the forest officials advocated that there was no long term goal and planning while raising the seedlings in nurseries, which affected the overall quality of planting stock. 

 

Neglect of Survey and Planning

Ü  The crucial factor of survey and planning in plantation programme was utterly neglected, as concerns expressed by officials in some districts. Without proper survey and planning the successful implementation of plantation programme could not be ensured. The current allocation of funds and time period for conducting these activities was not also sufficient.   

 

Excessive Work Load

Ü  A number of DFOs expressed their opinion towards the excessive workload. According to them even after devoting whole day in the office a number of assignments remained pending. Hence, to overcome these pending tasks they have to work overtime quite often. Now a part of NREGA programmes were implemented by forest department making them further engaged in additional assignments.

 

Poor Education Level of Forest Guards and Foresters

Ü  Low level of education among quite forest guards and foresters did not go well with a number of forest officials. At some occasions this led to poor understanding of programme and other important issues of forest management. It affected the quality of work and its output.

 

Limited Authority to DFO in Transfers and Postings

Ü  Some DFOs felt that they had limited or no authority in terms of taking decisions on transfers and postings of RFOs and other officials as well. It was also indicated that some of the staff lack proper commitment and dedication towards their duties, since the head of the division had little authority.

 

Laidback Attitude and Leadership of Problem among Community

Ü  During the selection of JFMCs officials most of the community people were reluctant to take hold the responsibility. Lack of awareness, low level of literacy, stark poverty, etc. were main factors, which affected their confidence in taking decisions during crucial moments.

 

Dispute between JFMC Members and Forest Staff

Ü  At a number of occasions some disputes and clashes of opinion between JFMC members, foresters and forest guards was reported on the issues related to control and utilization of project fund. As reported, the foresters and forest guards were even threatened by villagers and once stopped not to conduct plantation in that area.

 

Meager Livelihood Opportunity in the Fringe Villages

Ü  Stark poverty among the community people in most of the districts put extra pressure on forest officials in motivating them for their participation in plantation programme. The livelihood opportunity for community has been limited in most of the districts. Hence, they always remained busy in search of such opportunities.

 

Inadequate Capacity Building Programme to Hone Skills         

Ü  It was observed that there was inadequate efforts from forest department to organize capacity  building programmes in the form of workshops, trainings, interactive programmes,  etc. for foresters, forest guards, JFMC members and community people so that they could sharpen their skills and learn new ideas and thoughts.

 

Ü  Other factors affecting the plantation programmes were--lack of team spirit among the JFMC members and community people, inadequate measures to check soil erosion, irregular meetings of JFMC officials, laidback attitude of community, erratic monsoon behaviour, undulating terrain and poor soil condition, etc.

 

 

Chapter-5

 Suggestions and Recommendations for Improvement

 

On the basis of detailed analysis of the plantation schemes and overall assessment of the programme, the following suggestions and recommendations are proposed to improve the effectiveness and output and to maintain the sustainability of the plantation programme. It is as follows:

 

Measures to Check Grazing and Control High cattle Population

Ü  The implementing agency should evolve a viable strategy to maintain a check on grazing in the plantation area by domestic animals. The first step could be raising the awareness and motivation to community so that less productive cattle population could be voluntarily cut down by respective households. Other step in this direction could be stringent measures like fines and punishment against those persons or households who leave their cattle unattended in the plantation areas.  

 

Recruitment of Staff to fill Vacant Positions

Ü  The forest department should initiate the process of recruitment of staffs (forest guards and foresters) on priority basis to fill the vacant posts. The truncated staff was under pressure while conducting their duties and plantation programme also suffered. It was also revealed that implementation of NREGA programmes also put extra burden on already truncated staffs. Presently, the strength of forest guards remained less than 50% in most of the forest divisions, as reported.

 

Provision Basic Infrastructure and Facility

Ü  There should be adequate provision of all necessary infrastructures and other basic requirements to range level offices in the entire districts. There should be adequate number of vehicles, telephone, good office premises, accommodation facility, proper travel / field allowances, etc. Absence of such facilities put unnecessary burden on officials and their performances also go down.

 

Additional Fund for Protection of Plantation with 7- Year Duration

Ü  A significant number of forest officials felt that three years duration of protection and maintenance of plantations schemes should be extended to 5 years, with commensurate addition in funds. Several species hardly mature to survive well without proper protection and maintenance. Some forest officials in East Singhbhum district suggested that the duration of protection and maintenance should be extended up to 7 years for better optimum output.

 

Monitoring and Evaluation

Ü  The system of monitoring and evaluation has been an important component of plantation programme. It is suggested that planning and monitoring of the plantation programme should take place simultaneously for achieving better output.

 

Better Awareness Campaign

Ü  The project implementing agency should launch an intensive campaign to raise the level of awareness among community people of respective JFMCs. It should be carried out at regular intervals with the help of different means of communication tools and techniques such as leaflets, pamphlets, posters, wall writings, nukkad nataks, slogan raising, rallies, use of print media and electronic media, etc. Regular interactions of forest officials with community people could also be an important factor in motivating them.

 

Additional Fund for Interface Activities

Ü  There has been large scale demand for the creation of community assets under interface activities and also for repair of old wells, old ahar, old tanks, village footpaths, etc. But under the current norm only 15% fund of the total cost was used on these items. For meeting some additional demands of community people, it was suggested that the allocation of fund should be raised up to 25% to fulfill some extra demand.

 

Advance Planning in Raising Seedlings

Ü  A number of forest officials felt that while raising seedlings in nurseries there should be long term goal and better planning. The preparation of nurseries should be planned two years in advance for producing quality planting stock.

 

Priority to RDF Scheme

Ü  DFO Kolhan, Sri A K. Sinha was of the view that RDF scheme should be given priority in those areas where the success rate is high. He expressed his opinion and further suggested that in his division RDF was almost cent per cent successful as compared to plantation conducted under QGS scheme, which had more casualties.

 

Time Bound Transfer and Posting

Ü  The transfers and postings of officials should be time bound, which had adverse impact on their commitment while performing duties. There should be strict provision to bring a halt on frequent transfers and postings of officials.

 

Need of Contingency Fund Felt

Ü  Some of the project implementing authorities were of the opinion that contingency fund should be allocated on the basis of plantation sites to each forest division to make the plantation schemes more effective.

 

Seedling of Fruit Species Should be Drawn from Permanent Nursery

Ü  Seedlings of fruit plants should be drawn from permanent nurseries of longer duration to maintain better survival and health of the species. It was felt that in temporary nurseries only 2 to 3 months old seedlings were used and in some cases even less than two months old seedlings were used.

 

Capacity Building Programme to Develop and Hone Skill  

Ü  Special attention should be given towards human resource development programme. Forest department should organize interactive programmers like seminars, workshops; cultural programmes like music competition, sports competition, organization of exposure visits, similar other innovative programmes, etc. In such programmes field level forest staffs, JFMC members and community people should be involved.

 

Ü  Such interactive programmes would enhance the level of awareness among participants. They could learn new ideas related to management and protection of forest resources, hone their skills, raise their level of confidence, chances to work as a team, etc. The exposure visit of community and JFMCs members to successful JFMCs within the state and elsewhere in the country would provide them an opportunity to see and understand good work of successful plantation work.

 

Reasonable Work Load

Ü  Ever increasing activities in the forest departments and implementation of NREGA programmes by it has made the officials more engrossed in the work. Most of the DFOs had to work overtime to complete the pending job. These issues were raised by a number of project implementing authorities in most of the forest divisions.  

 

Timely Release of Fund and Time bound Implementation of programme

Ü  Some Rage level forest officials expressed that the allocated fund of the plantation programme should be timely released before the plantation season so that execution could be carried out without any delay. Majority of workers survive on hand to mouth economy and any delay in payment of wages could be very tough for them. There should be time-bound execution and completion of plantation programme.

 

Fixation of the Education Level of FGs and Foresters

Ü  Low level of education of forest guards and foresters was coming in the way of smooth functioning and proper implementation of the programme. For maintaining better standard in planning, implementation, management, protection and maintenance of afforestation programme, the forest department should fix a lower limit on education of these officials. A number of forest officials advocated that level of education of forest guards should be at least of class X and in the case of foresters, graduate.

 

Proper Survey and Planning of Proposed Plantation Area

Ü  Appropriate attention should be given towards survey and planning in the plantation programme. For this, separate provision of fund should be made available in advance and sufficient time be given so that the execution of work could be done properly.

 

DFOs should have Say in Transfer and Posting

Ü  DFOs should be entrusted with more powers so that they could maintain decorum and discipline among officials working at different levels in forest division, ranges and beats, etc. It was further suggested that the power to transfer and posting of RFOs should be delegated with forest department. Presently RFOs are transferred by state government and as a result of that there was not much control over them.

 

Check on Interference in the Programme by Influential People

Ü  Some measures should be taken by forest department to check the unnecessary interference of political groups in plantation programme during the election of JFMC officials and also during the creation of assets under interface activities.

 

Provision of Incentives to JFMC Members

Ü  A large number of suggestions came from the JFMC members in different districts regarding provision of honorarium or regular incentives to them. To enhance the performance of JFMC members, rewards should be given to the three best performing JFMCs in a division. It would motivate them and create healthy competition among JFMC members and community people to perform better. Such reward should also be given to field level forest officials.

 

Ü  Introducing the Concept of Carbon Credits: In tune with the global reality of rising temperatures because of increased green house gas emissions, the concept of carbon credits should be introduced at JFMC level without further wastage of time. Carbon credit is earned by planting new trees and maintaining the old ones. The concept, if introduced, will not only create a healthier environment but also become a regular source of income for the community people. Introducing carbon credits is an idea whose time has come.

 

Besides, the evaluation team felt that forest authority should also take into consideration the following points while implementing the plantation programme in future. It is as follows:

 

Ü  The project implementing authority should make concerted efforts in the direction of decentralization of forest management. Even though, the community people lack basic awareness, they should be entrusted with some responsibility so that they could feel that they were an integral part of the whole programme process.

 

Ü  The project implementing agency should make some headway in the direction of sustainability and institutionalization of JFM mechanism. JFMCs should be given statutory brand like PRI within the state.

 

Ü  Creation of village level common fund may act as a catalyst. Village level common fund should be established in all the JFMCs to make the plantation programme sustainable.

 

Ü  Documentation and maintenance of official records and project specific data should be ensured.

 

Ü  Plantation and creation of assets under interface activities should be done in such a way that they provide benefits to villagers on short, medium and long term bases.

 

Ü  The officials involved in the implementation and management of the project should be sensitized through trainings, workshops, seminars, etc.

 

Ü  The forest must be developed as perennial and sustainable source of livelihood and income generation for the community of the fringe villages where there was a paucity of regular sources of livelihood. 

DEVELOPMENT RESEARCH CONSULTANTS (DRC)