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views or policies of the Asian Development Bank (ADB), or its Board of Directors, or the governments they
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Upland Poverty and Climate Change: How can Forest Polices be made inclusive?
( For presentation in the ADB’s conference on “The Environments of the Poor in the
Context of Climate Change and the Green Economy- Making Sustainable Development
Inclusive” in New Delhi , November 24-26,2010)

K K Kaushal 1

INTRODUCTION

For the world’s poor, policies to mitigate and adapt to climate change, have as
much impacts as climate change itself. Climate change poses a risk to upland poor and
marginalized communities not only through its physical impact, but also through policy
responses to its real or perceived threats (Prowse and Peskett, 2008). Environmental
change is happening and the decisions we make now will influence our ability to adapt
now and in the future. Encouragingly, the impacts of mitigation and adaptation measures
are receiving high level policy attention. Buried within the “Bali Road map” is a small
sub-clause referring to the need to consider the ‘economic and social consequences of
response measures.

In the forestry sector, development pathways which aim to restock the forests
and tackle climate change while at the same time aiming at upland poverty alleviation
through appropriate institutions and economic instruments are needed.

Forest restoration is a combination of planting trees and human-induced natural

regeneration within a degraded forest area that has lost most of its carbon stock. Forest
restoration thus is a strategy applied in degraded forest areas. In terms of mitigating
climate change, forest restoration becomes complementary to reducing emissions from
reducing forest degradation. One could try to reduce as far as possible emissions from
degradation. In those areas where such a strategy is not completely successful, and
where degradation has already taken place, one would need to restore the forest. Under
current conditions there is a huge area of degraded forest that could be restored while
improving overall livelihood conditions including biodiversity, long-term income and
health (UNDP,2009).

This paper analyses the evolution of a community forestry project launched in

1997-98 in Tamil Nadu state of India into a comprehensive poverty alleviation project for
3.1 million upland poor in the context of climate change.

JOINT FOREST MANAGEMENT

Of the 63.72 million ha of forest cover in India (almost all is state owned and
controlled) over 40% is degraded, with a crown density of less than 0.4. This

1
Mr K K Kaushal belongs to the Indian Forest Service and has served as District Forest
Officer in Tamil Nadu state for over 10 years. He is presently posted as Managing
Director and Special Officer, SAGOSERVE Salem Tamilnadu. Email
kaushal64@gmail.com

1
degradation of forests is mainly ascribed to rigid state control and the resulting
disempowerment and displacement of indigenous tribal and hill communities,
accompanied by the disintegration of community-based resource management
(Fernandes and Menon 1987; Guha 1991; Kelkar and Nathan 19091; Gadgil and Guha
1992).

Consequently, the government of India made a major policy shift in 1988 and
switched to Joint Forest Management (JFM). JFM is an evolving community forestry
programme, which sets out to establish management ‘partnerships’ between local forest-
dependent communities and the state forest department for the sustainable
management and joint benefit sharing of public forest land (Sarin 1995). To accomplish
this, JFM seeks to shift the existing inequitable distribution of management control by
directly involving local people and institutions in forest management (Cambell 1996).
JFM does not involve the transfer of ownership of forests, but attempts instead to
restructure the formal system of access, decision-making, and sharing of benefits to
account for the needs of local communities.

Tamilnadu, the southern state on India, has a geographic area of 13 million ha,
which constitutes 3.96% of the land area of the country. The total population of the state
is 55.86 million accounting for 6.60% of the country’s population. The recorded forest
area is 2.26 million ha, which is 17.40% of the land area of the state. But the actual
forest cover, as assessed through remote sensing, is only 1.71 million ha – a mere
13.13% of the land area. Not only that, but half of this actual forest cover has a crown
density of less than 0.40 (FSI 2000).

There are 15822 villages in the state, of which 1405 are abutting forests. The
total population of these forest villages is estimated to be 3.11 million, a large
percentage of who live in remote upland areas where much of the residual forest is also
located. A large percentage of them constitute the most disadvantaged section of society
(based on per capita income, literacy rate, nutritional and health status, and lack of
access to social and technical services. Because of their remoteness, thin and scattered
population, modern development and amenities have not reached them. Nor do they
have political clout, as most of these people are tribal and scheduled castes. Rigid state
control and indiscriminate removal of bamboo and other trees by industries in the past
have degraded the forests, aggravated poverty of forest communities and jeopardized
the ecological and hydrological balance of the area.

SOCIAl INCLUSION in JOINT FOREST MANAGEMNT – Case of Tamilandu Forestry

Project
Tamilnadu Forestry Project refers to refers to the the US$200 million investment
being made by Tamilnadu state since 1997-1998 to preserve and restore and restore
the forests through JFM.forests through JFM In the project, degraded forest micro
watersheds which are severely constrained by climate induced changes such as erratic
rainfall, loss of bio-diversity, together with abutting hamlets, or habitation or revenue
villages are selected. The forest area is divided into three zones-Lower or Utility zone,
Middle or Asset creation zone and Upper or Eco-

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restoration zone. Normally, the area for all three zones is 250ha, in which the zone-wise
gap planting is taken up. The uniqueness of the project is that it has a provision of US$
12000 for village development alone under buffer zone activities over a period of 3
years. The aim is to reduce the dependence of villagers on forests by providing
alternate income generation activities.

In each of the identified management units, a people’s representative body, the

Village Forest Council ( VFC), is formed, and is fully involved in the planning and
execution of works, protection, harvesting and benefit sharing in the management unit
with a focus on degraded forests. One male member and one female member from
each household, provided that they are willing, are enrolled as its members. Any person
who opts out from membership of the Council is not entitled for any benefit. The VFC
meets as and when called for but, in any case, at least once in 3 months.

Each Village Forest Council elects an executive committee in such a manner that
one hamlet elects at least two members, and Council elects a minimum of 5 and
maximum of 15 members to the Executive Committee. The Panchayat (lowermost tier
of local self-government in India) members of the management unit are co-opted as ex-
officio members of the Executive Committee. (EC). The members of the EC elect its
president from themselves who is also President of the Council. The forest ranger
concerned is the member secretary of the EC who facilitates the election of members
and the president of the EC. The EC is responsible for day-to-day activities of the
Council and meets at least once a month. A memorandum of understanding is signed at
the start between the District Forest Officer (on behalf of Forest Department) and the
Council president. This details the roles and responsibilities of the Forest Department
and the VFC-the partners in JFM. All the VFCs are registered under the Societies
Registration Act 1975.

The Government order sanctioning the funds had the programme objective of
increasing the tree cover through involvement of the people. But once the programme
was launched, it was continuously reviewed, modified, and broadened in consonance
with feedback from the people and field officers. It was found that unless those
dependent on the forest (wood cutters and grazers) are weaned away by providing
alternate livelihoods for themselves, the social fencing would not be established. The
money for the buffer zone residents (for development of forest dependents) was
increased to US$12000 from US$6000. The individual grants were converted into
interest-free loans so that the VFC can build up its corpus fund and extend loans to the
remaining forest dependents for acquiring productive assets. The VFC president was
made joint signatory for withdrawal of funds and submission of accounts. One landmark
order came from the state government, for the involvement of all other line departments,
such as the public works, electricity, health, agriculture, animal husbandry and tribal
development departments, to give priority for holistic development of these micro-
watersheds. The involvement of other departments is monitored and guided by a state
committee headed by the Chief Secretary and, at the district level, by the Collector. All
department heads at state and district level are members of these committees. .

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FOREST POLICY AND UPLAND POVERTY ALLEVIATION IN THE CONTEXT OF
CLIMATE CHANGE

The accepted view in the world is that poverty is about more than inadequate
income or human development-it is also about vulnerability and lack of voice, power and
representation. With this multidimensional view of poverty comes greater complexity in
poverty reduction strategies because more factors-such as social and cultural forces
need to be taken into account. Based on the study of earlier programmes and interviews
with poor people in different countries, the World Development Report aptly proposed a
three-pronged strategy for attacking poverty: promoting opportunity, facilitating
empowerment, and enhancing security (IBRD 2001). In this strategy, none of the
elements can be said to be more important than the other as they are all deeply
complementary. Progress in reducing the scourge of poverty is possible by tackling one
element and leaving the other two untouched. For instance, wage work will improve the
income of the poor and may also improve their well beings if it is given for long period
but, once this is withdrawn, the people may relapse into the same poverty vortex.
Hence, for sustainable alleviation of poverty, actions will be necessary on all three fronts
– opportunity, empowerment and security – because of their complementarities and
mutual reinforcement.

Though it was never explicitly intended, even at later stages, broadening of the
Project in response to field household and climate change needs has caused it to
evolve into a sustainable poverty alleviation programme from a mere greening project.
At the local level it abundantly provides all three elements of the comprehensive poverty
alleviation strategy.

Opportunity

Tree assets

In the forest area of around 250 ha of each microwatershed, 77000 saplings are
planted, with deliberate emphasis on non-timber forest products (NTFPs). The species
used include Azadirachta indica, Phyllanthus emblica, Syzizium cumini, Tamarindus
indica, Bassia latifolia, Terminalia bellerica. In addition, 25000 saplings are distributed to
the villages for growing on their own lands. The VFC members are given the right to
collect NTFPs and a share in the final harvest. Assuming a realistic survival of 50% of
saplings to become trees, there will be 38500 trees in the forest area, which will yield
various NTFPs. This produce can be sold directly or after processing and value
addition. Already, many of the older VFCs having semi evergreen forests are getting
more than US$4000 annually from sale of NTFPs.

Water harvesting structures

In the forest area, water harvesting structures such as percolation ponds and
check dams are made to help in raising the water table and recharging bore wells in
adjoining agriculture lands. In a state like Tamilnadu, where annual rainfall is not more
than 700 mm and mostly in the monsoon season, these water harvesting structures
have caused complete transformation of the village economy by raising the water table.
In most places, the cropping intensity has increased and people have shifted to the
cultivation of high water use crops such as sugarcane and rice.

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Improvement in basic infrastructure

There are instructions from the government to all other line departments to
dovetail their development and infrastructure activities in Project villages on a priority.
There is a committee at

the state level headed by the Chief Secretary and at the district level headed by the
District Collector to guide, steer and oversee coordination by all other departments.
There is a substantial improvement in basic infrastructure such as roads, electricity,
drinking water and schools, in most of the watersheds. From the project funds, 30% of
the buffer zone funds is spent on creation of community assets like community halls,
threshing floors, etc.,

Promotion of alternate livelihoods

From buffer zone funds, village youths are given free training to enable them to
become drivers, electricians, television mechanics, etc., Apart from that, the women and
elders are trained in various village level activities such as rope making, pickle making,
tailoring, embroidering or soap making, so that they obtain a steady income from
alternate sources and need not cut wood for their livelihoods.

Literacy

The forest villages have a high incidence of illiteracy. After adoption of the
watersheds, the people have been motivated to admit their children to the schools.
Wherever schools were not available, they have been opened through the education
department or charitable organizations. Adult education classes were taken in some
villages. In one tribal village, namely Chellapanthoddi, the VFC itself started a school,
which was later taken over by a charitable organization.

Provision of milk cattle and other productive assets

The forest dependents are given loans from the buffer zone fund to buy high
quality milk cattle. Similarly, skilled women and other persons are given loans to buy
tailoring machines, tools, etc.

Wage work

Out of US$6000 spent in each programme micro-watershed, around US$36000

pays for the wage work by local people in planting or civil structures (mainly for
materials). In the first 3 years, this substantial wage employment on their doorstep
has provided a big boost and enabled the people to make full use of the infrastructure
and productive assets. Another hallmark of the programme is transparency, as all the
expenditure is done through the VFC.

Empowerment

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 A Panchayat, the lower most tier of local self government in India, comprises a
group of villages having a population of 6-10000 whereas a forest village has a
population of not more than 600. Thus, forest villages generally constitute only a hamlet
of the Panchayat and do not have any control or say in Panchayat affairs, leaving the
forest people absolutely powerless. But the formation of VFCs has provided a real
chance for their empowerment. The entire planning, execution and monitoring of the
programme is done by the VFCs, whose day-to-day affairs are looked after by its
executive committee headed by an elected President. The annual NTFPs revenue of
some of the VFCs has already exceeded US$ 4000 and from the initial money of

US$ 12000 for buffer zone, some VFCs have developed a corpus fund of US$24000, as
they charge interest of 1% per month from the beneficiaries. The Council president and
the concerned range officer jointly sign all the accounts and fund applications. Council
presidents are ex officio members of the district JFMC, which is headed by a District
Collector. This imparts more prestige and glamour to the post of president.

Women’s empowerment is given due emphasis and one third of the Executive
Committee members are necessarily held by women. In each village, one or two
women’s self-help groups are formed and are encouraged to undertake economic
activities individually or jointly using credit from the buffer zone fund.

Security

Restocked forests provide households with a means for diversifying their

subsistence and income generating activities, optimizing their labour resources during
different seasons, and insuring against the risks of agricultural failures (Koziell and
McNeill 2002).

Improvements in village infrastructure and diversification of income generation

activities have enhanced security. The rebuilding of the forests and water harvesting
structures has reduced vulnerability to drought, which is the most common risk. The
drought-proofing of these areas has gone a long way towards improving agriculture
income on a sustainable basis. The training in alternate livelihoods has also made a
significant contribution in reducing vulnerability to natural vagaries. The forest trees are
perennial assets available for generations and, by their nature, each successive year
their yield increases and susceptibility to natural vagaries decreases. Even last year,
when the rainfall in the state was the lowest in a century, Neem tree seed collection
proved to be a good source of income for the poorest of the poor. Not only that, in most
of the villages, group insurance has been provided to all the council members from
public sector insurance companies.

Thus, the Project amply provides the three elements-opportunity, empowerment

and security at the local level for effective poverty alleviation. The latest satellite data
show substantial improvement in forest cover and density in the state, the increase is
one of the highest in the country (SOMNEED, 2004 and FSI, 2009). A visit to the forest
villages is enough to gauge the palpable improvement in dwellings and living standards
of the majority of families. With these three pillars of poverty alleviation properly placed,
we do not see any reason for a relapse into the vortex of poverty. The remaining
households will also be able to cross the poverty line with the support of VFCs. No other
government programme in India has had such a comprehensive approach to poverty
alleviation. Integrated watershed development programmes incorporate multisectoral

6
integration for promotion of economic opportunities but they are unable to empower the
poorest of the poor. Most of other states in India are also implementing community
forestry projects but they lack integration of other departments and the amount spent for
alternate income generation is very low. Hence, these latter projects are not able to
make a lasting and real impact on forest conservation, apart from poverty reduction.

The Tamilnadu Forestry Project is a massive programme which has acquired a

poverty alleviation approach in the course of its implementation, as the feedback from
people and field officers was continuously used for broadening the project. Depending
on the dedication of field officers, cooperation by the district administration and interest
of the villagers, some of the 1118 villages covered so far have not been provided with all
the components described above.

CONCLUSIONS

The Tamil Nadu Forestry Project was conceived sanctioned and launched as mere
community forestry – based greening project. However, the flexibility, participatory
approach, continuous monitoring, review and readjustment have transformed it into a
comprehensive poverty alleviation project for the upland communities. It very vividly
demonstrates that the ultimate solution for forest conservation in India and other
developing countries lies not merely in community forestry but in keeping a broad
approach to alleviate poverty in the most comprehensive and sustainable way through
promotion of opportunity, facilitating empowerment and enhancing security. No climate
change policy programme such as climate change policy programmes such as
biodiversity conservation, can succeed unless it adequately caters to the development
needs of the people. The project also underscores the needs for present day foresters
to comprehend social-economic and climate change issues in addition to the technical
challenges for the successful take up of forestry projects. urther, the restocking of the
forests is directly contributing towards climate change mitigation and VFCs have
emerged as important community based institutions which can be used for evolving and
implementing local responses to climate change.

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