CESS MONOGRAPHS 33 RULNR MONOGRAPH - 19 Decentralised Forest Governance, Institutions and Livelihoods in Odisha: A Study of Evolution of Policy Process and Politics Bishnu Prasad Mohapatra RESEARCH UNIT FOR LIVELIHOODS AND NATURAL RESOURCES (Supported by Jamsetji Tata Trust) CENTRE FOR ECONOMIC AND SOCIAL STUDIES Begumpet, Hyderabad-500016 June, 2014 CENTRE FOR ECONOMIC AND SOCIAL STUDIES MONOGRAPH SERIES Number - 33 June, 2014 Series Editor : M. Gopinath Reddy © 2014, Copyright Reserved Centre for Economic and Social Studies Hyderabad Note: The views expressed in this document are solely those of the individual author(s). Rs. 200/- Published by : Centre for Economic and Social Studies Begumpet, Hyderabad-500 016 Ph : 040-23402789, 23416780, Fax : 040-23406808 Email : [email protected], www.cess.ac.in Printed by : Vidya Graphics 1-8-724/33, Padma Colony, Nallakunta, Hyderabad - 44 Foreword The Centre for Economic and Social Studies (CESS) was established in 1980 to undertake research in the field of economic and social development in India. The centre recognises the need for an interdisciplinary approach in order to have a comprehensive study of the economic and social development issues and hence tries to involve researchers from various disciplines. The centre's focus has been on policy relevant research through empirical investigation using sound methodology. Being a Hyderabad-based think tank, it has focused on, among other things, several distinctive features of the development process in Andhra Pradesh, though its sphere of research activities has expanded to other states as well as to issues at the national level. The Research Unit for Livelihoods and Natural Resources (RULNR) was established in the CESS in the year 2008 with financial support from Jamsetji Tata Trust. The core objectives of the RULNR are to conduct theoretical and applied research on policy-relevant issues on human livelihoods and natural resource management, especially in areas related to river basins, forest and dryland ecosystems and to provide an effective platform for debates on policy relevant aspects for academicians, policy makers, civil society organizations and development practitioners. The RULNR intends to adopt a multidisciplinary approach drawing on various disciplines including ecology, political science, and social anthropology. The present monograph titled "Decentralised Forest Governance, Institutions and Livelihoods in Odisha: A Study of Evolution of Policy Process and Politics" by Mr. Bishnu Prasad Mohapatra undertaken under the RULNR, CESS Research Programme, attempts to understand the emergence of decentralised forest governance in the State of Odisha during the post-independence period as an outcome of policy process and politics associated within such process. Further, the study also analyses the effects of pro-poor forest polices on the livelihoods of the forest dwellers of the state while examining the policies such as Joint Forest Management(JFM), Forest Rights Act(FRA) and Non-Timber Forest Produce (NTFP) deregularisation policy, and above all the emergence of such policies during different periods of time. Based on the objectives and the collected data-primary as well as secondary, the study is divided into six chapters. Chapters 1 and 2 discuss the conceptual framework and literature review while summarising various theoretical, conceptual and empirical evidences on decentralised forest governance, policy process, politics and livelihood effects of pro-poor forest policies. Chapters 3, 4 and 5 discus the core aspects of the study such as decentralised forest governance and its evolution in Odisha, along with the major forest policies in Odisha and their implications on the livelihoods and forest CESS Monograph - 33 (RULNR Monograph - 19) iv politics. In Chapter 6, which is the summary and conclusion chapter, the monograph summarises as follows:.... "The forest policy process has influenced the process of forest governance at different levels and this trend also helped in strengthening the forest-governing institutions and livelihoods of the forest-fringe communities. The issue of decentralisation has evolved in the forest governance and administrative system as a result of policy process, guided by the politics in the forest policy process. Forest politics have a significant influence on the policy process and in the case of Odisha it has been found that forest politics discourses are greatly influenced by the multiple actors and institutions. The Forest policy process in the forest sector has created space for the inclusion of the voices of the different actors, particularly the non-state actors, in the policy making and implementation processes. However, it is suggested that the policy process in the forest sector should focus on the involvement of the non-state actors in a sustained way. The voice of the traditional self-governing institutions should be heard and policy making and implementation should be done accordingly. Legislative debate on forest policies and implementation should also highlight why certain policies are not able to reach the doors of the desired communities, instead of highlighting the success of such policies. Corporate lobby on the formulation and implementation of the forest policies should be managed effectively and the state should not follow the agenda of the corporate bodies while making and implementing forest policies. Similarly, policy implementation issues also need better attention. The current pattern of forest policy implementation in the state needs fresh review considering the livelihood interests of the forest dependent communities and the view of the forest protection groups should also be taken seriously in the policy process. Overlapping of the implementation of different pro-poor policies should be avoided and the state legislative assembly should play a proactive role through highlighting the deficiencies in the functioning of the forest administration in the state”. I hope that the recommendations of this study will help to strengthen the forest policy formulation and implementation mechanism in Odisha. Further, I hope that the findings of the study will enrich the forest policy study and provide new insights to the researchers, academicians, policy planners, and implementers. S Galab Director, CESS Decentralised Forest Governance, Institutions and Livelihoods in Odisha: A Study of Evolution of Policy Process and Politics v CONTENTS Page No. Foreword iii List of Tables and Figures vi List of Boxes vii Abbreviations ix Acknowledgements x Executive Summary xi Chapter-1 Introduction 1-25 1.1 The Background 1 1.2 The Problem and its Rationale 5 1.3 Review of Literature 7 1.3.1. Conceptual Frameworks and Theoretical Narratives 8 1.3.2. Politics in Policy Process-A Conceptual Framework 17 1.3.3. Empirical Evidences 20 1.4 Identified Research Gaps 24 1.5 Organisation of the Chapters 24 1.6 Summary 25 Chapter-2 The Present Study- Contextual Importance and Methodological Issues 26-31 2.1 Introduction 26 2.2 The Study Design 26 2.3 Objectives 27 2.4 Research Methods 28 2.5 Data Collection 28 2.6 Analytical Framework 29 2.7 Analytical Narratives and Indicators 29 2.8 Limitations of the Study 30 Chapter-3 Decentralised Forest Governance: An Overview 32-58 3.1 Introduction 32 3.2 Profile of Odisha 33 3.3 Forests in Odisha 34 3.3.1 Forest Cover in Odisha 35 3.3.2 Forest Lands in Odisha 39 3.3.3 Forest Economy in Odisha 40 3.4 Forest Governance in Odisha- Decentralisation and Institutions 42 3.4.1 Forest Governance during Pre-Independence Era 42 3.4.2 Evolution of Forest Governance and Decentralisation-during Post-Independence Period 44 CESS Monograph - 33 (RULNR Monograph - 19) vi 3.5 Can Decentralisation in Forest Governance Address the Issue of Livelihoods 57 3.6 Summary of Findings 58 Chapter-4 Decentralised Forest Governance, Policies and Livelihoods: The case of Odisha 59-74 4.1 Introduction 59 4.2 The Indian Context 60 4.3 The Odisha Context 62 4.3.1 Major Forest Policies and Legal Provisions in Odisha 63 4.4 Livelihood Issues in Forest Policies 69 4.4.1 Forest-based Livelihood Programmes in Odisha 70 4.5 Evidence from the Field 72 4.6 Summary 74 Chapter-5 Politics in Forest Policy: The Case of Odisha 75-95 5.1 Introduction 75 5.2 Evolution of Forest Politics in Odisha 76 5.3 Forest Politics during Pre-Independence Era (1936-1947) 78 5.3.1 Evolution of Forest Politics 78 5.3.2 Forest Politics and Odisha Legislative Assembly (1937-1945) 78 5.3.3 Politics of Grievance and Committees 78 5.4 Forest Politics during Post-Independence Era (1947 to 2012) 80 5.4.1 Evolution 80 5.4.2 Forest Politics and Different Government 81 5.4.3 State Legislative Assembly and Politics in Forest Policy Debates 81 5.4.4 Forest Politics and Political Parties 87 5.5 Forest Politics and Non-State Actors in Odisha 91 5.6 Forest Politics in the Neo-Liberal Era 93 5.7 Can Politics make Forest Policy Process Effective? 94 5.8 Summary and Conclusion 94 Chapter-6 Findings and Conclusion 94-103 6.1 Summary 96 6.2 Findings 100 6.3 Conclusion 102 References 104-108 Decentralised Forest Governance, Institutions and Livelihoods in Odisha: A Study of Evolution of Policy Process and Politics vii List of Tables and Figures Table Particulars Page No. No. 3.1 Administrative Profile of Odisha 34 3.2 Forest Cover in Odisha-2005 Assessment 36 3.3 Actual Forest Cover in Odisha during Different Years 37 3.4 Land Use Pattern in Odisha 39 3.5 Production and Revenue Collection from Kendu Leaves in Odisha 40 3.6 Average Revenue from Different Forests Products during the Period 41 3.7 Evolution of Forest Governance in Odisha and Process of 45 Decentralisation in Odisha 3.8 Administrative set-up of Odisha Forest Department 53 3.9 Summary of JFM in Odisha 55 4.1 Forest Politics in India-A Critical Analyse between 1952 and 1988 Polices 60 4.2 Major Livelihood based on forest development Projects from 1937 to 194571 5.1 Odisha Legislative Assembly and Forest Debates (1937-1945) 79 Figure Particulars Page No.