Report
Report of the Steering Committee on Environment, Forests and Wildlife for the Tenth Five-year Plan (2002-2007): A Summary
Summarised by Mamta Borgoyary
INTRODUCTION
To facilitate the task of evolving an effective and efficient paradigm for environment, forestry and wildlife sectors for the Tenth Five-year Plan, the Planning Commission constituted a Steering Committee on Environment, Forests and Wildlife. The prime task of the committee was to review the existing policies and approaches in these sectors, and to suggest the best approaches that could be adopted for the Tenth Plan.
The Steering Committee submitted its report in February 2002, a summary of the main findings and the recommendations of which follow.
REVIEW OF THE FIVE-YEAR PLANS
Concern for the environment and sustainable development was formally acknowledged in the international agenda only after the Rio Conference in 1992. However, India has been directly, and indirectly, addressing this issue through its planning process since decades.
The Fourth Plan (1969-74) gave the first formal recognition to the need for integrated environmental planning. In 1972, the National Committee on Environmental Planning and Coordination (NCEPC) was formed. A separate chapter (chapter 20) on environment was introduced in the Sixth Plan (1980-85) containing various schemes on environment and an outlay of about Rs 400 million. During the Seventh Plan (1985-90), the outlay was scaled up tenfold to
Rs 4.28 billion approximately. A major programme on cleaning the Ganga was also initiated in the Seventh Plan, following which the 'National River Action Plan' was launched during the Eighth Plan (1992-97). This latter plan was also instrumental in emphasising on decentralisation of control over natural resources through participa-tory approaches. During the Ninth Plan, the spirit of Agenda 21 was reflected in the entire Plan document. The Ninth Plan put major thrust on environmental issues such as:
- Abatement of pollution - prevention and control of industrial, vehicular and noise pollution, mandatory enforcement of laws under various provisions of the Water, Air and Environment (Protection) Acts
- Mandatory environmental clearance for 30 categories of developmental projects and environment impact assessment
- Emphasis on noise management and hazardous waste management
- Better opportunities for environmental education, training and information
A review of the Five-year Plans in the forestry and wildlife sectors reflects how the emphasis of the planners shifted from catering to the economic needs of the country to that of meeting the subsistence needs of rural communities which were dependent on forests. Until the Fourth Five-year Plan, the emphasis remained on managing forests to meet the commercial needs of forest-based industries. During the Fifth Plan, the objective was creation of large-scale man-made forests and establishment of state forest corporations for their maintenance. The Sixth Plan, however, saw the beginning of emphasis on management of forests for their economic as well as ecological functions. The major thrust of the Plan was on saving natural forests from further depletion, creation of more protected areas for wildlife, and meeting the fuel and fodder needs of the local population.
The Seventh Plan marks the major transition towards participatory forest management for meeting the subsistence needs of the forest-dependent communities. The Eighth and the Ninth Plans further strengthened the concept of participatory forest management.
STRATEGY FOR THE TENTH PLAN
The Steering Committee emphasises the importance of maintaining environmental quality for achieving and maintaining quality of life. It recommends the two-way approach to development, that is, while poverty can lead to environmental degradation, similarly environmental degradation can also lead to poverty. Reforms, therefore, should be targeted at both ends. The report also mentions that "the best way of arresting environmental degradation and promoting sustainable develop-ment is by ensuring major participa-tion of people based on techno-environmental and socioeconomic evaluation of each development project." There is an in-built emphasis in the Tenth Plan approach for enhancing economic as well as social opportunities for all individuals and groups and a thrust on promoting greater participation of the community in decision making. Box 1 (on page 9) highlights the key elements of the Tenth Plan strategies.
To bring in the link between environmental concerns and development strategy, the Tenth
Plan has outlined the following key objectives:
- Enhanced livelihood opportunities
- Reduction in people's vulnerability
- Improvement in people's health and living environment
MAIN RECOMMENDATIONS OF
THE COMMITTEE
Based on its review, the Steering Committee has recommended the following for the Tenth Plan:
Environment Sector
Air Pollution
- The Committee suggested that suitable institutional arrangements should be made both within MoEF and the Planning Commission, so that the three groups - the group handling the UN framework for climate change, the group handling the declarations for urban air pollution, and the group handling the Montreal Protocol - interact with each other on a regular basis.
- The Committee proposed that all polluting industries, even those that existed before the environmental clearance was made mandatory, will be required to get a clearance.
- All air quality monitoring stations should link up to a computerised national network with the controlling room in the Central Pollution Control Board (CPCB).
Vehicular Pollution
The Committee proposed that a study should be carried out on inventorisation of pollution in the metropolitan cities. Programmes should be developed for more effective pollution checks of vehicles and for setting up inspection and maintenance centres with private sector participation.
Water Quality Monitoring
The existing water quality monitoring programme undertaken by CPCB and the state CPCBs should be further strengthened and supplemented by co-opting educational and public health institutions.
A national survey to identify areas where ground water has been polluted should be carried out. Further, a programme for containing ground water pollution should be prepared based on the data generated through this study.
Noise Pollution
Greater public awareness about noise pollution and effective implementation of regulations and the standards set should be stressed upon.
Industrial Pollution
More Common Effluent Treatment Plants (CETPs) should be promoted in those areas where industries are in clusters.
The scheme of 25 per cent subsidy to CETPs should continue.
Initiatives should be taken to move polluting industries currently located in isolated sites to locations where CETPs are available.
Special attention should be given to polluting industries such as leather tanning and distilleries.
Initiatives should be taken to phase out obsolete technologies that are highly polluting.
Critically Polluted Areas
Detailed action plans should be drawn up for controlling pollution in the critically polluted areas.
Clean Technology
Initiate carrying capacity-based development planning.
Carry out lifecycle assessment studies in selected sectors.
Introduce natural resource accounting.
Set up demonstration projects for implementing state-of-the-art clean technologies.
Introduce sustainability perform-ance criteria in the funding mechanisms of financial institutions to promote pollution prevention and cleaner technologies.
Environmental Impact on
Human Health
Studies on environment and health and the linkages between them should be undertaken, with special focus on health impacts of indoor pollution.
Eco-villages
Develop Eco-villages through NGOs near Allahabad, Hardwar, Nasik and Ujjain where mahakumbh fairs are held.
NGOs can provide training to public and local bodies in these villages.
Environmental Impact
Assessment (EIA)
Introduce screening and scoping criteria to determine whether detailed EIA is required and to decide the critical areas of focus.
Establish an environmental databank to facilitate availability of reliable data pertaining to air quality, water availability, flora, fauna, and environmental status in their various stages.
Use monitored data for preparation of EIA report and also to decide the desirability of a project in a region/location.
Undertake cumulative and regional environmental impact assessment to facilitate the implementation of projects with optimal use of natural resources.
Special emphasis should be put on reclamation of mined areas and to explore the use of fly ash.
Enhance the scope of EIA to include/delete some activities based on technological progress.
Evolve a system of benchmarking of EIA reports so that project proponents will be able to ensure better quality of EIA prepared for their projects.
Coastal Zone Management
Shoreline management plans should be prepared for the entire coastline of the country based on scientific studies, and detailed coastal zone management plans should be developed for important coastal stretches.
Protection of Ecologically
Sensitive Areas
Develop a proactive programme for protection of ecologically sensitive areas.
Ecological Survey Conservation and Eco-regeneration
Increase the survey coverage by the Botanical Survey of India by at least 10 per cent of the geographical area of the country.
Promote the use of modern technologies such as GIS, GPS and Remote Sensing.
Control and regulate deforestation of mangroves and exploitation of coral reef resources in the coastal areas.
Discourage encroachments in mangrove areas, and regulate and control pollution which are an outcome of disposable wastes and other toxic wastes discharged in the coastal areas.
Promote plantation of mangroves on non-forest and community lands by involving the local community.
Provide alternative livelihood options to the community dependent on mangroves such as fish and prawn culture, apiculture and horticulture plantations, etc.
Encourage development of fodder depots to reduce cattle grazing in mangrove areas.
Encourage energy plantations in adjoining areas of mangroves.
Ensure integrated coastal management programmes, address cultural, traditional considerations, particularly the rights and needs of traditional owners and users.
Increased emphasis should be laid on augmenting greater involvement of the local communities through Panchayati Raj institutions by linking ecological protection to economic well-being.
Strengthen the ongoing pro-gramme on environmental education, awareness and the need for people's participation.
Forestry Sector
Greening India Programme
An additional area of 43 mha is proposed to be covered under the Green India Programme in 10 years. It includes:
15 mha of degraded forest land to be covered under JFM.
10 mha of irrigated area to be brought under commercial agroforestry.
18 mha of rainfed area to be brought under subsistence agroforestry.
Strengthen JFM
Suitable forest patches should be entrusted to well-defined user groups with transparent MOUs delineating roles and responsibilities of JFM committees and forest department.
Detailed projects should be prepared for assistance under Rural Infrastructure Development Fund (RIDF) of NABARD.
'Food for Work' scheme should be launched through the JFM programme.
Forest Development Agencies should be set up as federation of JFM committees for timely flow of funds, decentralised and integrated rural development.
Forest Protection Committees should tie up with industries or other agencies for sale of JFM produce.
Promote Agroforestry
Commercial agroforestry should be practised in areas where irrigation is available. Suitable species include Acacia nilotica, bamboo species, Casurina equisetifolia, eucalyptus species, Populous deltoides and Prosopis cineraria for different agro-climatic and edaphic conditions.
High-tech modern nurseries should be established on the basis of catchment areas.
Agroforestry product research, new product development, new designs and quality standards should be developed.
Agroforestry should be practised in rainfed areas by adoption of various agroforestry models that would provide additional income as well as complement agriculture.
ICFRE institutes should make available elite clones of multipurpose species for NGOs and big farmers for multiplication.
NGOs should establish high-tech nurseries for multiplication and distribution of seedlings, agro-techniques, etc, to the farmers.
Agency for Greening India Programme
A Green India Authority will be set up for coordinating the following activities:
Hill Area Development
Programme
Integrated Watershed Development
Border Area Development Programme
Rehabilitation of shifting
cultivation areas
Desert Development Programme
Drought Prone Area Programme
Island Development Programme
Social Forestry outside forest areas
Agroforestry Programme
Joint Forest Management
Other plantations/afforestation programmes
Green India Authority will carry out the following activities:
Formulation of projects for availing grants/loans from donor agencies.
Pooling of funds from various plan schemes.
Quality implementation of pro-grammes through respective agencies.
Marketing and trade development, import substitution and export promotion of forest products.
Ensuring sustainability, food through the 'food for work' scheme and employment generation in backward area.
A 'Green India Fund' will be created for successful implementation of the programme.
Medicinal Plants
To meet the growing demand of plant-based medicines in the national and international market, it is obligatory to grow medicinal plants in degraded forests areas. It is proposed to establish 200 Vanaspati Van over
1 mha of degraded forests. A large number of medicinal plants are known to occur in dry deciduous forests as compared to the evergreen or temperate forests. Hence, more Vanaspati Vans should be located in dry deciduous forests.
For conservation of biodiversity, it is proposed to establish Medicinal Plants Conservation Areas (MPCA) at 200 sites inside national parks and sanctuaries. Detailed botanical study of each site should be completed aiming at documentation of all plant taxa occurring in MPCA.
Forest areas rich in medicinal plants should be identified for creating a Medicinal Plants Development Area (MPDA). It is proposed to identify 1 mha of such areas in continuous patches of about 5,000 ha each. A management plan for each MPDA should be prepared for harvesting and developing medicinal plants on a scientific and sustainable basis.
Development of Bamboo Resources
Bamboo resources should be appropriately developed inside as well as outside forest areas with the following objectives:
Soil and water conservation.
Sequestration of Carbon.
Harvesting of bamboos for consumption of shoot as food.
Utilisation of culms for more than 1,000 uses.
New generation bamboo products to substitute wood.
Utilisation of bamboo for reducing import of pulp and timber.
Boosting export of bamboo composite and laminate.
Bamboo bearing areas likely to gregariously flower in the Tenth Plan should be harvested by formulating emergency Working Plans.
Other programmes include:
Rehabilitation of shifting cultivation.
Development of 5,000 forest villages.
Shelter belt plantations in coastal and desert areas.
Urban forestry development.
Strengthening of ICFRE and other institutions.
Wildlife Sector
Development of Protected Areas (PAs)
- Systematic and effective manage-ment and implementation of PAs from the economic, ecological and social points of view.
- Protection network, infrastructure development, capacity building of personnel, etc, should be effectively tackled in the management plan.
- All activities should be undertaken through community involvement.
- National Wildlife policy should also take into consideration the increasing problems of crop raiding by wild animals, increasing human-wildlife conflict, increasing trend of poaching of wild animals, grazing and encroachments in protected areas.
Project Tiger and Project Elephant
- The main thrust of Project Elephant should be on protecting existing elephant habitats from further degradation and fragmentation, identifying and protecting corridors, mitigation of human-animal conflict, efficient management of domesti-cated elephants, and arranging for training and skill development of manpower in their management.
Protection of Wildlife Outside Protected Areas
- The corridors and zones of fringe wildlife population need to be developed.
- The development strategy of these fringe zones should integrate the economic development issues with those of wildlife development.
- Wildlife education and research should be promoted.
