G.O. Ms. No. 84/97 F & WLD, Thiruvananthapuram, dated 16.1.1998
INTRODUCTION
The National Forest Policy, 1988 envisages people's
involvement in the development, protection and management of forests. It is also
increasingly being felt that forest management programme need to be reoriented to respond
to the needs of the rural people living in and around forest areas and that the forest
produce like fuel,wood, Non-timber forest produce (NTFP), timber, etc. are made available
to the forest dependent villagers preferntially so that village communities are motivated
to help in the development and protection of forest. Accordingly, Government of India,
Ministry of Environment and Forests in their letter dated 1.6.1990 had issued guidelines
for involving village communities and voluntary agencies in regeneration of degraded
forest lands. The State Governments were also requested to take appropriate action along
the suggsted lines. The guidelines suggested by the Government of India envisage the
formulation of a Participatory Forest Management Scheme charged with the responsibilities
of preparing plans (microplans) for participation and managing the same as per the
approved plan.
Increasing pressure of population on forests and the resultant
forest degradation, the fragility of the ecosystem, conservation of biodiversity and
maintenance of ecological balance of the area, are major concerns of the state. The fact
that policing the forest resources alone is not enough to protect the forest from
degradation and that the participatory management experience from all over the country
bears testimony to the participatory management experience from all over the country bears
testimony to the participatory approach in dealing with anthropogenic factors in forest
protection, justifies the development of Participatory Forest Management (PFM) approach
for protection of forests in Kerala wherre these factors have contributed to degradation
to a sizeable extent. Having realised the necessity of ensuring people’s
participation in effective protection and management of the forest resources in Kerala, it
is decided to develop PFM programme envisaged in the State will have to be developed
through a number of pilot studies in selected areas designed to address different forest
management problems. With a view to evolve the modalities and the related strategies in
implementing the programme, detailed workshops, seminars and discussions were also held
with all levels of forest officers, scientists, public, members of legislative assembly
and NGOs. Study tours by forest officers were also conducted in other states where PFM is
being practised.
As PFM is new in Kerala, initially it will be taken up in
selected sites only. Pilot studies will be carried out at six sites in the first year. The
strategy adopted will be "learning by doing". Apart from the periodical review,
there shall be a State level review of the whole process after two years of the programme
Modifications, if any, will be introduced in the programme after the biennial review.
These guidelines outline the general principles of PFM.
Considering the prevailing socio-political conditions in Kerala, PFM in Kerala may require
different model for different socio-economic conglomerations. Therefore, adequate freedom
and flexibility in design and implementation of the programme shall be given to the
Divisional Forest Officer (DFOs). DFOs should be encouraged to take up experimental PFM
projects with the approval of the concerned Conservator of Forests (CF). The objective of
such experiments is to develop appropriate location specific PFM models suitable to
Kerala.
Objectives
The objectives of the PFM programme in the State during the
pilot phase are twofold:
To explore the potential of PFM in different forestry and
socio-economic contexts having direct influence on factors like forest fires, grazing,
encroachment, timber smuggling, unsustainable removal of NTFPs and environmental
degradation.
To develop appropriate approaches to introduce PFM in Kerala.
Scope of the Programme
One of the major causes of forest degradation in Kerala is
the biotic human pressure on forests. High density of human population, low per capita
forest area and dependence of people on forests for subsistence and income generation
activities justify the development of approaches involving people living in and around
forests. Moreover, success stories reported from different parts of the country encourage
the State to develop PFM models for protection, development and management of forests in
Kerala. Major factors contributing to forest degradation related to people-forest in
Kerala are the following :
Forest Fires
Grazing
Unsustainable harvesting of NTFPs such as green manure, fire
wood, medicinal herbs and poles.
Human-animal conflicts
Forest encroachments
Timber smuggling
Gunja cultivation
Poaching of wild animals
Environmental degradation etc.
The PFM Pilot Programme will be designed to assess the potential
of PFM to address these critical forestry problems through strategies for :
Management of fires to reduce forest degradation
Introduction of Sustainable NTFP harvesting practices to
reverse the declining trend of growth of valuable NTFPS.
Stopping further encroachment into forest areas
Curbing illicit timber harvesting which is leading to forest
degradation and loss of revenue for the state.
Reversing localized environmental degradation such as seasonal
water shortage and soil erosion resulting from deforestation in watersheds/catchments.
The programme will also consider different socio-economic
contexts. It will be developed to start with, in some settlements located inside forest
areas. Forest Settlements (FS). In order to ensure that PFM programmes are developed in
different situations villages having high, moderate as well as low dependence on forests
will be selected.
Areas to be selected for PFM
Keeping the above factors in view, the range officer (RO)
shall select degraded natural forests and plantations where conditions are sustainable for
introduction of PFM approach. These areas may include :
Scattered and fragmented degraded forest lands in the vicinity
of the villages, facing encroachment and conservation problems
Fringes of forest areas adjoining villages
Forest areas adjoining tribal hamlets
Forest areas encroached after 1.1.1977 and evicted by the
Kerala Forest Department (KFD).
Procedure for Developing Participatory Forest Management
(PFM)
Under PFM the agreed forest management activities will be
planned, implemented, maintained and monitored by the village institutions – Vana
Samarakshana Samithi (VSS) constituted for the purpose with the help of suitable
facilitators and the KFD. Participatory process first requires creating a good rapport,
trust and partnership between the KFD field staff and the local people. The process of PFM
involves the following phases : entry phase, planning phase, implementation phase and
monitoring phase. Activities involved in each of these phases will be as follows :
1.Entry phase (period – two months)
Activities in this phase include :
Selection of the area
Selection of a principal consultant
Appointment of State level PFM Coordinator.
Selection of training institutes
Training, extension and motivation of the KFD staff as well as
the local people.
Selection of Social Intermediaries (SI) and Non-Governmental
Organisation (NGOs).
Formation of Planning Support team.
Intended outcomes for entry phase will be :
Identification of area for PFM approach
KFD staff and local people are trained in PFM
All executive staff of PFM have been selected
ii. Preparatory Phase (Period – next two months)
The activities in this phase include :
The intended outcome for preparatory phase are :
Identification of the problems to be addressed through PFM
Formation of VSS and VSS Executive Committee (VSSEC)
Finalisation of bye-law of VSS and VSSEC
iii. Planning Phase (Period - next four months)
The activities in this phase include
The preparation of a written microplan document which
essentially contain the details of :
PRA exercises for the assessment of natural resources and its
utility pattern.
Problem identification as well as potential of the area from
villagers’ and KFD’s perspective.
Agreement on the objectives of the plan.
Suggested activities for protection, maintenance etc. (i.e.
why, where, who, what, when).
Roles and responsibilities – including rules for rights
and privileges, management of funds etc.
Terms and conditions for sharing of costs and benefits.
Procedure for evaluation of and amendments to the Programme.
The intended outcomes of this phase will be :
The formulation of a detailed microplan in consultation with
the local community addressing all aspects of resource management of that particular
locality.
iv. Implementation Phase (period – next 40 months)
Activities in this phase include :
Site demarcation
Participatory Forest Rehabilitation (PFR) works
Non-Forestry activities
Maintenance of accounts
Overseeing of roles and responsibilities
The intended outcomes of the phase will be :
The KFD officials should actively involve in
each of the above phases. The Sis shall be engaged for working along with the villagers
and forest officials in all the phases. The initial meeting with the villagers may be
facilitated through local NGOs and Panchayats.
The selection of the PFM area shall be done on a watershed
basis. The selection of the participating village community shall be done on the basis of
a Panchayat Ward / identifiable hamlet/user group depending on the local situation and the
need to have an equitable and identifiable participating community. While selecting the
area and identifying the participating village community / user groups, the DFO will
initiate actions for entry phase activities. In the course of such contacts, the Range
Officer (RO) may fix up a date in consultation with the villagers for converting a meeting
of the participating village community.
RO will convene the village community meeting on the appointed
date after giving due publicity for the same in the locality. On the prescribed date, a
village level institution namely, Vana Samarakshana Samithi (VSS) shall be formed.
The field of activities of the individual samithi shall be the
selected areas in the nearby forests and it shall be surveyed and demarcated in the field.
For all subsequent meetings of the VSS, the member secretary of
the VSSEC shall be the convenor.
Constitution of the Vana Samarskshana Samithi (VSS)
Every household in the selected ward/hamlet/user-group will
have the option of participating in the Samithi. Any two adult members of a household can
participate in the VSS and out of the two one should be a women. They shall register their
names with the RO on a payment of a sum of Rs. 5 per household which shall be credited to
the Core Fund of the VSS. The SC/ST members are exempted from the payment of registration
fee. For the purpose of sharing of benefits as per clause 12 each family will be
considered as a single unit. The number of units date of approval to each VSS approved by
him. Now members to the VS shall be admitted once in a year on the basis of recommendation
to this effect by VSSEC to the DFO.
Duties and Responsibilities of VSS
A General Body Meeting (GBM) of the VSS shall be held once
in every six months to review the actions taken in pursuance to the approved microplan,
status of forest protection and functioning of the VSSEC. Under special circumstances, the
GBM of VSS may be convened on request of not less than 1/3rd of the VSS members
to the Convenor of the GBM quorum for GBM will be 1/3rd of the total members.
The Secretary of the VSSEC shall be the convenor of the GBM of
the VSS and shall maintain the minutes of the meeting.
The members of VSS individually and collectively shall be
responsible for :
ensuring protection of the PFM areas from encroachment,g razing,
fires, illicit felling, poaching, thefts, etc.
ensuring execution of the activities in accordance with the
approved microplan through the executive committee
making other villagers aware of the importance of nature
conservation and forest protection
ensuring protection of other forest areas not covered under PFM.
Members of VSS shall have the power to :
apprehend the forest offenders and hand them over to the forest
officers for taking action under the provision of the relevant Acts and Rules. Where
forest offenders have been handed over to the concerned forest officers, the concerned
officer shall be responsible to report back to the VSSEC the action taken by them.
Constitution of the Executive Committee
After formation of the VSS as explained above, VSSEC shall
be constituted from the members of VSS to carry out the approved PFM plan, the microplan.
The VSSEC shall consist of the following members.
i. Nine elected representatives from the VSS (of the 9 members,
at least 3 shall be women. There shall also be proportional representations from SC/ST
communities (rounded off to the higher number ) - Member.
Grama Panchayat member of the concerned panchayat ward –
Ex-officio Member.
A representative of an active local NGO (Nominated by the DFO)
– Ex-officio Member.
A nominee from the Tribal Development Department (only in the
case of VSS in which tribal members exceed 1/3 of the total membership_ - Ex-officio
Member
Forester/Forest Guard having jurisdiction over the area –
Ex-officio Member Secretary.
The committee shall elect the president from the elected
members. The term of President shall be co-terminus with that of the committee. Only the
elected members shall have voting rights. One third of the members of the VSSEC shall
constitute the quorum. The term of the committee shall be two years.
The ex-officio member secretary shall call the meeting of the
VSSEC in
consultation with the president and shall record and maintain
the minutes of the meeting.
The RO shall be returning officer for the election of members of
VSSEC in the GBM of the VSS.
The approval of the DFO is mandatory for the VSSEC.
Duties and Responsibilities of Executive Committee
The VSEC shall meet at least once in every month.
The member secretary shall be responsible for sending the
minutes of the meeting of the VSSEC to the RO for information and advice. In case the
Forest Range Officer finds the decisions of the VSSEC are contrary to the approved
microplan or to the relevant acts and rules, he shall report the matter to the DFO and the
Conservator of Forest (CF) immediately and inform the committee also. The decision of the
DFO on this will be binding on the committee.
If any member of the VSS is found to indulge in acts against the
various forest laws and rules and becomes an accused in a forest offence or acts against
the approved microplan, he shall be debarred from the VSS by the VSSEC.
The VSSEC along with the Member Secretary shall be responsible
for preparation and execution of the microplan.
The VSSEC shall be responsible for ensuring the general
protection of forests.
The VSSEC shall be responsible for implementing the VSS
Operations Funds and VSS Core fund and for maintaining proper accounts of the expenditure
incurred, in the prescribed formats and procedure.
Termination of VSS/VSSEC
The DFO for sufficient reasons on record shall have powers
to dissolve the VSSEC and/or the VSS after conducting due enquiry. The VSSEC shall be
given an opportunity to appeal against such orders to the CF within one month. The order
of the CF in the matter shall be final.
Duties and Responsibilities of the Kerala Forest Department
KFD shall provide technical assistance in the formulation
and implementation of the microplan.
KFD shall make all efforts to get the finances for the
implementation of the annual activities specified in the microplan. For activities outside
the microplan, the KFD shall facilitate in procuring sufficient funds from other
departments.
If the DFO is convinced that the VSS has carried out their
duties satisfactorily in the protection of forest from encroachment, theft, illicit
felling, fire, grazing, etc. and for the activities specified in the microplan, the amount
earmarked for these works will be credited in the account of the committee under VSS
operation fund. The fund can be utilised by the committee for the implementation of the
various development programmes decided by them.
The DFO or his nominated officer shall be responsible for the
review of the activities of the VSS every quarter. The monthly review shall be conducted
by the RO. The CF will review the programme every six months. The shortcomings and the
observations noted during the review, shall be rectified by the committee immediately.
If the DFO finds that the funds for the activities in the
microplan are not utilized according to the plan or agreed conditions, he shall stop the
implementation of the microplan.
The KFD will arrange for providing necessary training to VSS
members in various forestry activities like raising nursery, planting etc.
The VSS members shall be trained to maintain the accounts.
Forest officials shall inform the VSS about the various
provision of forest acts and rules and give details of forest offenders to the committee
in order to get the necessary and timely assistance of the committee in detection of
offences and successful prosecution.
Sharing of Benefits
On satisfactory achievement of the aims of VSS in terms of
protection of forests and implementation of the activities in the microplan the VSS will
be entitled to the benefits given below. The benefits will be sanctioned only on the
recommendations of the VSSEC. Harvesting of all the forest produce in PFM area will be as
per the silvicultural principles.
The VSS shall be entitled to collect the specified quantities
and items of NTFP from the PFM areas as per the prescriptions in the microplan.
The VSS shall be entitled to collect the specified quantities of
fodder, fuelwood, green manure or such other products from PFM area for bona fide use of
its members as per the prescriptions in the microplan.
The VSS shall be entitled to collect specified quantities of
bamboo and reeds on segniorage rates from PFM area for bona fide use of its members as per
the prescriptions in the microplan.
The VSS shall be entitled to 10% of the net revenue of the
harvested forest produce from the plantation raised and protected by VSS under PFM. The
VSS will also be entitled to 100% of the net revenue from the NTFPs from the forests and
services rendered within the PFM area. The amount so received shall be credited to the VSS
Core Fund. 50% of this amount shall be utilised for the developmental activities other
than forestry activities, 25% may be distributed among the members or utilised as decided
by the VSSEC and the balance 25% will be kept under a separate head for future sustained
management of forests after the project period. This pattern of distribution is only a
guideline and the VSS, however, will have full power to decide on how to spend their
benefits.
13. Microplan
The VSSEC shall prepare a microplan for a period of 10 years
in consultation with the participating community user-groups, NGOs and the KFD. The
microplan shall be prepared through a process of Participatory Rural Appraisal (PRA)
involving all sections particularly women, SC/ST and user-groups.
The plan shall include the prescriptions for the management of
forest and village resources under the control of the VSS.
The plan shall contain the details on production of fuelwood,
timber, fodder and other forest produce and annual harvestable quantities.
The plan shall prescribe measures for the control of excessive
biotic pressure on forests, for protection and restoration of forests to ensure
sustainable flow of goods and services.
The plan shall provide sustainable management prescriptions for
the area by detailing harvesting practices, areas to be tackled and the yield. It shall
also contain a distribution plan for all forest benefits.
The plan shall include other development programmes required by
the communities which wil help in reducing dependency on the forests.
The plan shall specify the activities to be supported by the KFD
and a detailed strategy for those activities where finding will be needed from other
sources.
The plan shall describe how funds will be managed, how
activities should be monitored and prescribe mechanisms for amending the plan whenever
necessary.
The plan shall essentially cover various aspects related to
resource management and development such as :
Forest protection (i.e. demarcation of areas, prevention of
fire, grazing, unauthorised entry, felling of trees, green manure colleciton, harvesting
of forest produce, etc.).
Forest maintenance (i.e. silvicultural practices, regeneration,
rehabilitation, soil and water conservation etc.)
NTFP development (i.e. planting and maintenance of fuel, fodder,
medicinal plants, pasture, green manure and other activities promoting sustainable
harvesting and improved marketing of NTFP by value addition).
Resource Management of Non-Forest land (i.e. soil and water
conservation measures in the fringe villages).
Other activities – Community development requirements of
the villages.
The microplan, thus prepared shall be presented in the GBM of
the VSS for its approval. It shall be then sent to the DFO who in turn shall forward it to
the CF with his comments, and modifications, if any. The CF will have the authority for
effecting amendments in the plan, if need be. All activities covered under any other
approved plan/project for the area selected for the PFM, shall be included in the
microplan. But no non-forestry activity or any activity contrary to the existing Acts and
Rules shall be undertaken in the forest area.
VSS Operations Fund
The cost of investments in planting soil and water
conservation measures and contribution to the protection of forests from the KFD will be
put in the VSS operation fund.
Al the forest development activities would be funded through
this fund in accordance with the provisions built in the microplan. Outflows from this
fund would be :
* Cost of planting and other forestry investments in accordance with
the provisions of the microplan
* Share of benefits to the VSS / Member of VSS as agreed and set down in the
rules.
In the beginning, an advance will be given to the VSS for
undertaking the forestry activities in the PFM areas. On successful execution of the
works, the vouchers submitted by the VSS will be passed by the KFD in accordance with the
FSR and
Core Fund
A core fund shall be constituted by the VSS for the other
developmental activities and individual share of benefits to members of VSS. The VBSS will
contribute to this fund initially from the membership fee collected for becoming a member
of the VSS and subsequently from the benefits received by it by way of implementation of
the microplan. The VSS can utilise this fund for various developmental activities and
sharing of benefits among the members as per the approved microplan and sustained
management of forests after the project period.
16. Maintenance of Accounts under the VSS Operations and Core
Funds
All financial transactions of the VSS shall be carried out
through the two accounts (VSS operation fund and Core fund) jointly operated by the
designated member from VSSEC and the member secretary from the KFD in any nationalised /
schedule bank. The accounts shall be kept and audited as per the prescriptions in
microplan.
Memorandum of Understanding
A Memorandum of Understanding in the appended format will be
signed between the KFD and the VSSEC before implementing the PFM programme.
Review of Pilot Phase
The pilot programme will be reviewed annually in a workshop
organised at the state level and modifications, if any required, will be made to the pilot
programme and the guidelines.
19. Resources Available for participating officers
The staff of KFD, Sis and NGOs will be give adequate
training (through coaching, tours, etc.) in PFM during the project period.
Government will appoint a forest officer not below the rank of a
CF as State-level coordinator.
Three research studies, one each on forest encroachments, timber
smuggling and incentives for successful PFM in Kerala, will be contracted out as pa part
of PFM programme (in the State).
Memorandum of Understanding
A memorandum of understanding in the following format shall
be signed between the Executive Committee of the VSS and the Range Officer (on behalf of
Forest Department) before the starting of the implementation of the microplan.
We, the President and Secretary of the Executive Commitee of
the VSS of _________village__________Forest Range (on behalf of the VSS) do hereby
undertake individually and collectively to perform the duties and shoulder the
responsibility as detailed in Government Order No.__________dated_______for proper
management, planning and protection of the forest areas as per the Appendix given below :
APPENDIX
1. Name of the Committee :
2. District :
3. Forest Division :
4. Forest Range :
5. Village :
6. PFM forest area (surveyed sketch
should be signed by both the parties) :
7. Legal status of the PFM forest area :
8. Boundaries of the PFM Forest area : North
South
East
West
We understand that the usufructory benefits as detailed in the
aforesaid GO shall be allowed only upon satisfactory observance of rules by the Executive
Committee and by members of the VSS as per the aforesaid GO. A copy of the aforesaid GO is
annexed herewith duly signed on every page in evidence of our having understood the same
in letter and spirit. It is hereby agreed that this MOU will come into effect from________
President of the Executive Committee Signature__________________
Name and Address
Secretary of the Executive Committee Signature__________________
Name and Address
Forest Range Officer (on behalf of KFD)
Signature__________________
Name and Address
Witness
Signature 1. Name and Address
2. Name and Address
Place
Date
