IPP28 Volume 2 Section 3 Tribal Development Strategy

3.1 Introduction

Public Disclosure Authorized Chhattisgarh has a tribal population of 32.45 percent (Census, 1991). Tribals are concentrated over nearly 65 percent of the states area, and this area covers seven districts entirely and another six districts partly'. The state is home to several tribes - small, large and even those nearing extinction in numbers - and it presents among the most challenging scenario for human development anywhere in the country.

This strategy document broadly outlines the context of socio-economic and development status of tribal groups in Chhattisgarh and presents a plan to address these within the framework of the World Bank financed District Rural Poverty Project (DRPP). The DRPP is a people centred, participatory, poverty alleviation programme that targets the poor and disadvantaged section of the population in all 16 districts of Chhattisgarh. The implementation of the project is based on an innovative approach that highlights demand- sensitive development, promoting and supporting effective decentralised governance and

Public Disclosure Authorized addressing obstacles to income security.

It is well established that the tribal communities as anywhere else in the country, are one of the most vulnerable and marginalised group. They face social diversity, oppression and economic hardships in various forms. They have to contend with unequal and insecure access to productive resources and share poor participation in governance. Tribal areas and communities largely remain underserved through public systems - both on account of supply (resources fail to reach the target or programmes fail to bring long term change) and demand (poor ability to demand and elicit resources and services) factors. Poor educational achievements, vulnerable health status and insecure livelihood base have kept these groups to the margins of development in Chhattisgarh. The number and status of tribals, thus warrant specific attention to aspects of their participation and intended

Public Disclosure Authorized benefits from DRPP.

Through this tribal development strategy the government makes an attempt to recognise the fact that benefits from programmes and schemes intended for the tribals do not reach them automatically and that deliberate and strategic measures and protective regimes have to combine with relevant programmes in order to ensure that benefits actually accrue to vulnerable sections such as tribals. Accordingly, this document sets out an agenda of action for DRPP and identifies measures and provisions intended to protect and enhance the participation of and benefit to the tribal communities in the selected DRPP districts. This paper identifies broad principles and directions for institutional and programmatic intervention with the tribals in DRPP.

This strategy document is structured as follows:

Public Disclosure Authorized 1. Context of Tribal Communities in Chhattisgarh and their status in DRPP Districts - An Overview. 2. Legal and Policy Framework for Tribals in Chhattisgarh.

Census, 1991

F~~~ECOPY ~~~~46 3. Government and Non Government Organisations working for Tribal Development in Chhattisgarh. 4. Tribal Development Strategy for DRPP. 5. Institutional and Programmatic Interventions for Tribals in DRPP.

3.2 The Context of Tribal Communities in Chhattisgarh and their status in DRPP Districts

3.2.1 An Overview

The state of Chhattisgarh is home to a large tribal population, which is diverse in location, origin, socio-cultural history, language, livelihood and level of development. With the exception of some isolated tribes, which continue to be in the food gathering stage, settled cultivation is the dominant mode of occupation for most of them. However, forests continue to be significant source of livelihood. This is a result of the historical pattern of settlement whereby the tribal communities reside in or near forested areas. The areas of tribal concentration in Chhattisgarh can be classified as under:

North Eastern Zone: Comprises of Surguja, Raigarh, Bilaspur and areas of other adjoining districts. The primary hilly north-eastern zone is the abode to the Oraons, Kawar, Majhi, Bharia, Agaria, Nagasia, Khairwar, Dhanwar and Korwas. The area has a number of primitive tribes such as Korwas and smaller groups of Baiga. In Chhattisgarh, six agencies have been set up especially for development of these primitive tribes. These six agencies are:

I. Kamar Vikas Abhikaran, Gariyaband (Kamar Development Authority, Gariyaband) 2. Abhujmarh Vikas Abhikaran, Narayanpur (Abhujmarh Development Authority, Narayanpur) 3. Baiga Pahadi Korba Vikas Abhikaran, Bilaspur (Baiga Pahari Korba Development Authority, Bilaspur) 4. Pahadi Korba Vikas Abhikaran, Ambikapur (Pahari Korba Development Authority, Ambikapur) 5. Baiga Vikas Abhikaran, Kawardha (Baiga Development Authority, Kawardha) 6. Pahadi Korba evam Birhor Vikas Abhikaran, Jashpur (Pahadi korba and Birhor Development Authority, Jashpur)

These agencies work towards all round development of these tribes by making provisions for drinking water sources, civil constructions, health facilities, schemes such as purchase of land for landless primitive tribe people, etc., all with the objective of making them self- reliant.

Southern Zone: Comprising of Bastar and other districts carved out of Bastar, this is a large area with very high tribal concentration. This area is populated by various tribes like Gond, Bhatra, Halba, Maria and Pardhi. Numerically, Gond is the largest tribe of Chhattisgarh.

2 For notification as Primitive Tribes, four criteria have been laid down by Government of India - economy based on extremely backward agricultural technology, very low literacy rates, isolated from mainstream lifestyle due to geographical situation and less growth rate of population than expected for long period.

47 Table 1: Details of Scheduled Tribe Population in DRPP Districts of Chhattisgarh (1991) S District Total STs % Of Total Major Tribes Other Tribes No. Population Population I Bilaspur 1694883 347216 20 Gond, Kawar Dhanwar, Bhinjivar, 2 Korba 825891 356222 43 Sawar, Bhaina, Oraon, 3 Janjgir-Champa 1110200 135641 12 Majhwar 4 Surguja 1581872 897217 57 Gond, Kawar, Oraon Bharia, Agaria, Nagasia, 5 Koriya 500758 220360 44 Khairwar, Dhanwvar. Korwa 6 Raigarh 1065939 392385 37 Gond, Oraon, Bharia, Bhinjwvar, 7 Jashpur 656352 429092 65 Kawar, Sawar Dhanwar, Kharia. Korwa, Majhi, Nagasia 8 Raipur 2529166 331554 13 Gond. Kawar Bhinjwvar, Saur, Sawar, 9 Mahasamund 791197 222298 28 Flalba, Bhunjia, Kamar 10 Dhamtari 587679 160175 27 II Durg 2397134 298059 12 Gond, FHalba Kawar 12 Ra jnandgaon 1089047 293071 27 Gond, Kawar, Halba Baiga 13 Kawardha 513496 103946 20 14 Bastar 1116896 742799 67 Gond, Bhatra, Fllalba Pardhi 15 Kanker 532151 296584 56 16 Dantewada 622267 490505 79 TOT-AL 17614928 5717124 32

Source: Census 1991 & Chhattisgarh - A State is Born.

There are a few sections of tribes, who by virtue of their location and entitlement have derived benefits of settled agriculture under favourable conditions and have also sought to assert a higher social identity. However, for most tribals, settlements along the hilly tracts, forests or marginalised lands; social status and economic endowment is low and precarious. The large number of tribals present in the state pose a challenge for all development and poverty reduction initiatives and programmes have to b sensitive to their social, cultural and livelihood context.

A list of Scheduled Tribes in Chhattisgarh, numbering 42, is given in Annexure I and of the seven Primitive Tribes in Annexure 2.

The following are the main development indicators that highlight the problems and challenges faced by the tribal communities in the state:

3.2.2 Education

Education is one of the most powerful tools for socio-economic empowerment but the tribal communities of the state have lagged behind, both in terms of access as well as scholastic achievements. Although the state has invested considerably in infrastructure development for universalising education, large proportions of tribals, particularly girls, still remain outside the scope and reach of formal schooling. The 1991 census revealed that the overall literacy rate among the tribals was 26.7 percent, male literacy was 39.7 percent and female literacy rate a mere 13.9 percent. We may assume that these rates would have increased considerably over the last ten years, a period in which the literacy rate of Chhattisgarh state progressed from 42.9 percent in 1991 to 65.2 percent in 2001.

48 There are of course spatial variations. Lack of social motivation, economic stress, limited perceived relevance of schooling, poor teacher motivation and inadequate resources have combined tojeopardise the tribals' access to education. These act even more aggressively on the girl child. Hence, the gender gap in education remains persistent. A district wise presentation of literacy rate amongst scheduled tribes is given in table 2.

Table 2: District wise presentation of Literacy Rate amongst STs in Chhattisgarh (1991)

S No. Districts Literacy rate amongst STs (All) I Koriya 19.5 2 Surguja 3 Bilaspur 29.9 4 Korba 5 Janjgir-Champa 6 Jashpur 32.8 7 Raigarh 8 Kawardha 35.6 9 Rajnandgaon 10 Durg 50.6 11 Raipur 35.7 12 Mahasamund 13 Dhamtari 14 Kanker 15.5 15 Bastar 16 Dantewada Source: Sanket, Chhattisgarh - A State is Born, Bhopal.

Chhattisgarh has been a witness to a number of innovative government programs like Education Guarantee Scheme (EGS), Alternative Schooling, District Primary Education Project (DPEP) and initiatives by voluntary organisations in the field of education. The initiatives have sought to fill the supply gap by offering more and better-equipped facilities and also to improve effectiveness of public education system by focusing upon pedagogy and aspects of teacher motivation. EGS ensures provision of a school within one kilometre radius of a settlement from where the demand for the same has come and where there are at least 40 children (25 for tribal areas) who do not have access to a primary school. DPEP is a World Bank sponsored project, which works towards universalising primary education through multiple interventions at programmatic and institutional levels and which covers all aspects of education. Alternative Schooling was introduced as an intervention under DPEP for education of children who are not able to study in formal schools due to various socio-economic reasons.

3.2.3 Livelihood and Employment

Land, both private and public, is the main source of livelihood in rural areas, with agriculture, animal husbandry, forestry and allied activities the main sectors in which tribals earn their living. These are carried on primarily for their own subsistence and often under endemically adverse ecological and economic factors. The status of

49 agriculture and allied activities of the tribals is basically low technology low input, and subsistence economy based. While there are segments amongst tribals who own large tracts of land and have also taken to more productive and hence more remunerative agricultural practices, they by and large revolve in low technology equilibrium. The major constraint in enhancing agriculture returns among the tribal groups has been marginal land ownership, feudal structures of production and low ability for investment.

Raipur (Raipur Rajnandgaon Bastar (Bastar Bilaspur Mahasamnud (Rajnandgaon Kanker and(Bilaspur, KorbaSurguja (Surguja Raigarh (Raigarh and Dhamtari) )urg and Kawardha) Dantewara) and Janjgir) and Koriya) and Jashpur)

Size Class (i Number Number Number Number Number Number Number llect.) S.T. 'Iotal S.T. Total S.T. Total S.T. 'Iotal S.T. rotal S.T. Fotal s.T. Frotal Below 0 5 28636 215434 12187 105038 13015 71893 29303 47651 54485 312616 46551 92227 9782 78141 0 5-1 0 27375 151447 12366 84833 13238 54838 28586 43260 30353 153697 33929 60625 3266 50563 Margmal 56011 366881 24553 189871 26253 126731 57889 90911 84838 466313 80480 152852 53048 128704 Small (I 0 to 2 0) 2053 141966 13620 78965 18814 66383 48793 71948 30234 127869 45259 77285 30381 59824 2 0 to 3 0 15800 63661 6288 34161 12050 34881 45728 64789 15715 54927 30067 49885 0557 35815 3 0 to 4 0 7550 31464 3074 18510 5912 18605 19396 4968 7780 25967 15702 24271 12018 19619 Semi medium 23350 95125 9362 52671 17962 53486 65124 89757 23495 80894 45769 74156 32575 55434 4 0 to 5 0 Ha 4524 19215 1823 11187 3768 11846 14848 19176 4751 15760 10423 15705 8257 13375 5 0 to 7 5 I-la 355 18538 1707 11812 4117 12681 18620 2632 943 14897 11803 17512 10362 15712 7 5 to 10 Ha 1716 7609 563 4830 1874 5620 9506 11181 2040 6184 788 7038 4599 7074 Medium 10595 45362 4093 27829 9759 30147 42974 52989 11734 36841 7014 40255 23218 36161 10 to 20 Ha 1085 5616 18 3921 1314 4282 9826 11235 1258 4265 734 4446 3415 5755 20 & above 95 1182 31 1034 174 883 3707 3964 128 835 11 495 388 868 Large 1180 6798 349 4955 1488 5165 13533 15199 1386 5100 2945 4941 3803 6623 rotal 123189 656132 51977 354291 74276 281912 228313 h20804 1151687 1717017 201467 1349489 1143025 86746

In most of the districts, less number of tribal families own land. The size of these holdings is smaller, when compared to those of the general population. The proportion of tribal land holdings is also lower than their proportion in the total population. Further, their share of cultivated land is smaller than their share in population in nearly all the districts.

Table 3: Landholding Distribution in different size classes in Chhattisgarh Number Area S.T. Total S.T. Total Below 0.5 213959 23.2% 923000 57978 24 0% 241606 0.5-1.0 169113 28 2% 599263 122234 29.2% 41 8554 Marginal 383072 25.2% 1522263 180212 27.3% 660160 Small (1.0 to 2.0) 219154 5.1% 624240 321998 5 8% 898569 2.0 to 3.0 146205 43 2% 338119 342848 42 9% 799403 3.0 to 4.0 71432 43 7% 163404 245400 43 8% 560565 Semi medium 217637 43 4% 501523 588248 43 3% 1359968 4.0 to 5.0 Ha 48394 45 5% 106264 216626 45.7% 474157 5.0 to 7.5 Ha 55907 49 1% 113784 337261 49.2% 684848 7.5 to 10 Ha 25086 50 6% 49536 209677 50 3% 416921 Medium 129387 48.0% 269584 763564 48 5% 1575926 10 to 20 Ha 19950 50 5% 39520 265788 50 6% 525239 20 & above 4734 51.1% 9261 151658 51.9% 292476 Large 24684 50.6% 48781 417446 51.1% 817715 Total 973934 32 8% 2966391 2271468 42.8% 5312338 Source MPFIDR 1998

50 Access of tribal population to land, remains highly unstable and insecure. Land alienation and insecurity of tenure has been a regular cause of concern related to tribal land ownership and this makes their stakes even more uncertain, amounting to virtual landlessness. Wrongfiul dispossession, unfair tenancy arrangements and bondage are common in these areas. In these situations, most of the tribal families exist on the margin of an agrarian economy serving it with their cheap labour and skills. Till 3 1 5' March, 2002, 42687 cases of dispossession of tribal lands by non-tribal had been registered in the competent courts, of which 41774 had been disposed off by then3.

The major problems that tribals face in securing access to land are described as under: iii > Access to Revenue Land: - * Scheduled Tribes are deprived of their land through illegal means and extortion. * While the State has adopted a progressive policy of distributing government revenue land to landless, incomplete land records and their unavailability subvert this policy effectively. For example, the main field revenue official, the patwari does not have a list of the landless. * The Land Ceiling Act provides for appropriation of surplus land by the state and their distribution amongst the landless. However these provisions are not enforced. * Questionable methods are employed to auction land of weaker sections by the banks. * Development and conservation projects acquire land of the weaker sections. * Illegal sale of land owned by Scheduled Tribes continues despite restrictions. * Access to Forest Land: - * Forest Policies can on occasion, lead to the loss of land use and even eviction from homestead areas of tribal people, if the policy declares that these as protected areas. * The survey of encroachments prior to 1980 is not impartial. Encroachments on forestlands and their subsequent regularisation used to be permanent feature in forest areas. The Forest Conservation Act passed in 1980 puts a stop to this practice. It imposed very stringent conditions for diversion of forestland for non-forestry uses. However, following agitation by forest dwellers, Government issued guidelines to regularise encroachments prior to 1980. * Forest villages continue to remain outside the mainstream as the Forest Act of 1980 has hampered their conversion into revenue villages.

In most cases, the quality of land held and tilled by tribals, is least productive (this is the result of the historical pattern of settlement where tribals have come to inhabit the marginal land in hills around the cultivated tracts, where incidence of irrigation is also low ). Often the best quality land is held either by non-tribals or influential sections of the tribal population

Farming is further constrained by the predominance of rainfed conditions, lack of assured protective irrigation, declining soil fertility, untimely and inadequate availability of inputs

3Revenue department, 2002 4Land use classification in Madhya Pradesh, 1992-1993, table EL-3, page 242, MPI-IDR 1998

51 such as seeds, power, and fertilisers, a generally low level of technological adoption among small and marginal farmers.

Commercially oriented animal husbandry based on cattle rearing and dairying is again limited both on account of paucity of feed base, low investment ability and poor marketing options. However goat rearing, pig rearing and small-scale poultry are common among many tribal groups. Its products are used for exchange, localised sale and domestic consumption. Thus, these usually remain outside the scope of commercial marketing.

3.2.4 Forestry

Forest and forest produce occupy an important place in the tribal economy and employment. In the state, the richest forest reserves are found in the tribal homelands and the access to and use of these has been the source of much contention between the tribals, private interests and the state machinery for which the forests also represent an important source of revenue.

The forests of the state are rich in timber and non-timber forest produce. These have been traditionally collected, processed and sold by them and thus, form an important source of cash income for them. Estimates indicate that nearly 91 million person days of employment are generated in the forestry sector and the largest share (90 percent) of these accrue to the tribal residents of the forest areas5. These days of work are generated quite largely through the Forest departments managed and controlled works in Forests. Apart from employment, tribal economy and life depends very largely on forests and its produce - these include substantially fuelwood, minor forest produce that is used for personal consumption and for sales, for nutritional purposes, for cultural and lifestyle usage, for medicinal purposes, ad other myriad uses, much of which remains as a knowledge resource within tribal communities. Yet the dependency on forests, often a resource that sustains and re-inforces tribal life, is becoming unsure and unsustainable due to reducing forests, stringent laws on use of forests, and increasing biotic and public pressure on forests.

The most important employment generation in forestry takes place through collection and sale of Non Timber Forest Products (NTFPs). The five most important NTFPs are nationalised with the Chhattisgarh State Minor Forest Produce Co-operative Federation, which has monopoly rights of collection of these NTFPs. The federation undertakes the collection of nationalised NTFPs through primary cooperative societies. The most important NTFPs from livelihood generation point of view are nationalised NTFP like tendu patta, sal seeds and harra. Around Rs. 200 crores were earned by tendu patta collectors in 20016. This is significant supplementary income to agriculture that accrues to tribal families in the lean agriculture season. But often due to adverse weather conditions the quality and quantity of NTFPs are badly affected. Headloading of firewood around towns is frequent and provides critical income to poor households.

The Chhattisgarh Government has accepted the responsibility of meeting the forest produce requirements of the people living around the forest area, through 'Nistaar'. Under sForest Dcpartment, Department Employment Report, 2001-2002 6 Forest Department, 2001-2002

52 Nistaar, the Forest Department supplies fuel and fodder to the villagers at,subsidised rates. The latest forest policy of the Government restricts this facility to villages located within five kilometres of the forest fringes. However, local residents do not have any clain on commercial revenue from the forest.

Tribals have a close linkage with the Forest Department as they reside in and around forest areas that are managed by the Department. The relationship has been problematic to say the least. At the crux of myriad problems, lies the question of ownership - Who owns the forest land? - the Forest Department or the tribals? The uneasy co-existence has at times broken into open hostilities also. The new initiative of the Forest Department viz. Joint Forest Management (JFM) seeks to resolve this crucial issue by offering tribal communities a stake in the management of the forestland, whereby the Gram Sabha holds the responsibility of coordinating the implementation of the project and also plays a role in resolving issues. A total of 6412 JFM committees covering more than 33924 sq. km. of forest have already been formed in the state7.7 Under the DRPP project, the CIGs can take up the initiative of forming Forest Protection Committees (FPCs) provided they have not been established till now in their respective villages. A FPC is a higher order organisation compared to CIGs and might comprise of a number of CIGs operational in the village. Initiatives such as strengthening of an existing FPC can also be taken up. If physical activities are necessary to restore degraded land, then funds for undertaking such measures should be accessed from other sources.

If JFM emerges as a priority intervention in an area, it will be necessary to train members of DRPP field teams in the subject. The project will have to closely liaison with the Forest Department in order to gain sanction and registration of FPCs.

3.2.5 Labour and Employment

Tribals are predominantly engaged in primary sector - agriculture, animal husbandry and forestry related activities, their low asset base in terms of land and livestock and few options for self-employment, usually makes wage labour an important component of tribal's economy in the state. The overwhelming source of wage labour for tribals is agriculture operations. In addition to this, forestry, mining and quarrying, and construction work are the other important employment sectors for them.

Labour arrangements and practices vary across the state but are uniformly pitted against the poor. In most cases, these are governed by traditional exchange relations dominated by the upper caste landholding elite and the merchant classes. Economic relations based on social control are highly exploitative and have sustained in the light of credit dependence of the tribal poor on the peasant castes, forcing them into virtual bondage in many places.

The quest for wage labour has guided the tribal poor to urban centres and regions of high agriculture production, where employment is usually available in areas of agriculture, public works and construction. Young women also migrate (though in lesser numbers) alongside adult men leaving behind elderly and children in homesteads. The wage labour is casual and completely determined by vagaries of market forces and none of the numerous labour laws are applied to this mode of employment. Labourers have to depend

7Forest Department

53 upon their employers for basic needs such as shelter, food, etc. This vast casual workforce has been described as 'footloose people' by researchers studying their conditions.

Active participation by women in manual labour is a feature of rural societies everywhere. This is even more so for tribal society, which is unhindered by caste taboos that place restrictions on women's mobility for wage labour. It is common to find tribal women going out on their own for wage labour on public works and to towns. While men folk cut and gather fuelwood, it is often the women who bring it into urban centres for sale.

Finally, children enter the workforce early in tribal society. Low average years of schooling, high dropouts and establishment of nuclear family after marriages means that young tribal adults have to be independent very soon. Children work as construction labour and in quarries and also provide critical labour at home and in agriculture.

3.2.6 Poverty and Deprivation

Given the adverse social and economic relations governing their lives, the tribals of Chhattisgarh are among the poorest and most vulnerable group in the state. The recent poverty surveys8 show that 5,89,363 tribal families live below poverty line. They comprise 41 percent of all families below poverty line in the state. This is much higher than their proportion in the total population, which is 32.45 percent.

Table 4: Percentage of Tribal BPL Families in DRPP districts of Chhattisgarh

S No. District Total no. Percent of Percent of tribal of rural Total BPL families living below families families the poverty line 1 Raipur 454122 36 18.9 2 Mahasamund 167780 50 32.7 3 Dhamtari 112472 32 44.4 4 Durg 327523 33 17.2 5 Rajnandgaon 192866 41 32.9 6 Kawardha 94062 51 29.8 7 Bilaspur 334258 42 28.1 8 Korba 132352 44 58.6 9 Janjgir-Champa 230391 41 17.5 10 Raigarh 243332 45 39 11 Jashpur 127949 40 54.0 12 Sarguja 335165 51 60.9 13 Koriya 86290 40 58.4 14 Bastar 219786 58 70.6 15 Dantewada 91081 79 78.7 16 Kanker 150086 29 50.7

The major tribes in the areas that will be covered in DRPP are Gond, Oraon, Maria, Bhariya, Agariya, Nagasiya, Halba, Pardhi, Korwa, Dhanvar, Manjhi etc. They populate

BPL Survey conducted in 1999-2000

54 different areas though there does exist some overlap also9. There are also some considerable differences between them, which will require different approach by PFTs towards these groups even in the same area. Hence, it is important that the members of the PFTs have an understanding of the characteristics, needs and approaches of these tribes. While many of them own some land, they also depend on wage labour and often face extreme exploitation and forced bondage. Hence, the PFTs must be prepared for a spectrum of activities from amongst the tribal population.

3.2.7 Legal and Policy Framework for Tribal Communities in Chlhattisgarlh

The Constitution of India makes special provision for tribals. It lists out predominantly tribal areas in Section I of Schedule 244 that are referred to as Scheduled Areas. The Schedule gives state-wise list of communities to be designated as Scheduled Tribes. Following widespread cases of atrocities against members of Scheduled Castes and Tribes, the centre has passed Prevention of Atrocities (SC and ST) Act, which stipulates stringent punishment to those who commit atrocities against any tribal.

The strict hierarchical caste divisions in the Indian society place the tribals at the very bottom of the social ladder even though they are strictly not part of the caste system. Social discrimination is widespread and it takes numerous forms like denial of public facilities to members of SC/ ST, derogatory forms of address, forced show of subservience in the presence of upper caste people, and segregatory practices. Violence is often resorted to for enforcing the norms. While legislation existed earlier also against these practices, the new powerful act provides for strong punitive action in these cases. It makes commitment of atrocities against SC/ ST a non-bailable offence.

In addition to the above significant act, the main State Acts that intend to protect the interests of the tribals in Chhattisgarh are as follows:

Chhattisgarh Land Revenue Code: This Act governs tenancy regulation in Chhattisgarh. Section 170 (A) and (B) of this code place restrictions on transfer of agriculture land owned by a tribal to a non-tribal. The transfer is completely prohibited in Tribal Sub Plan (TSP) areas. In non TSP areas, transfer is possible only with the permission of the Collector.

Chhattisgarh Money Lending Act: This Act regulates activities of moneylenders with a view to protect the interest of the weaker sections of the society. It puts a limit on interest rate that can be charged and the total interest that can be charged. It makes registration obligatory and also limits the power of the civil court to issue decree in money lending cases and thus, provides relief for the debtors.

Panchayat Act (Extension to Scheduled Areas) 1996: The legal framework for Panchayati Raj governed by the 73rd Amendment of the Constitution was not applicable to Scheduled areas as it was thought that Panchayati Raj bodies in tribal areas should be formed in keeping with the existing social organisation in these areas. Considering the need and demand for extending the provisions of Part IX of the Constitution to the Scheduled Areas, a high level committee, called the Bhuria Committee was set up under the chairmanship of Shri D.S. Bhuria, in 1994. This committee was expected to examine

9 Refer Table I

55 all related issues and make recommendations on the salient features of the law for extending the provisions of the 73rd Amendment to the Scheduled Areas. The committee submitted its report in January 1995, and after thorough examination of the recommendations made by the committee, a bill was introduced in the Parliament in Dec. 1996. This was subsequently passed and was made into an Act namely, The Provisions of the Panchayats (Extension to the Scheduled Areas) Act, 1996 (Act no. 40 of 1996). The objective of this Act are as following:-

> To extend the Provisions of Part IX of the Constitution relating to the Panchayats to the Scheduled areas with certain modifications. > To provide self-rule for the bulk of the tribal population > To have village governance with participatory democracy and to make the gram sabha a nucleus of all activities. > To evolve a suitable administrative framework consistent with traditional practises. > To safeguard and preserve the traditions and customs of tribal communities > To empower Panchayats at the appropriate levels with specific powers conducive to tribal requirements. > To prevent panchayats at the higher level from assuming the powers and authority of panchayats at the lower level of the gram sabha.

This act is applicable to the scheduled areas mentioned in Clause (1) of Article 244 of the Constitution. As a sequel, all existing laws relating to Panchayats in the fifth schedule area had to be amended as per the provision of this act with one year time period. The other Acts that have been amended are Chhattisgarh Land Revenue Code and Chhattisgarh Excise Act. Amendments in Chhattisgarh Money Lending Act and Chhattisgarh Village Court Act are under process.

Designation of Tribal Areas as TSP, MADA and Clusters: An important policy that has governed tribal development administration is the designation of Tribal Sub Plan areas in the fifth five-year plan (1974-79). TSP areas include Scheduled areas and those tehsils in which tribal population exceeds 50 percent of the total. In order to cover villages that could not be included in TSP areas as per their definition, the concept of MADA was introduced in the Sixth plan (1980-85). Under this, those cluster of villages have been identified as MADA (Modified Area Development Approach) pockets, which have an aggregate population of 10,000 and where 50 percent of the population belongs to tribal communities. Finally, steps were taken in Seventh five-year plan (1985-90) to cover isolated and scattered pockets of STs in the state through the identification of more pockets with tribal population of 50 percent in clusters of 5000 population. In all, Chhattisgarh now has 18 ITDPs (Integrated Tribal development Plan), 9 MADA pockets, 6 Special Most Backward Tribal Development Authorities and 2 Clusters. Each of these has a specific project and fund allocation handled and coordinated by the department of Tribal Development and SC welfare. DRPP and ITDP areas will overlap, but ITDP funds will not be used to duplicate DRPP works as rules governing ITDP forbids it. However, dovetailing of funds can be done for an objective common to both the projects.

56 3.2.8 Government Structures, Services and NGOs for Tribal Development in Chihattisgarh

Government Agencies

Department of Tribal and Scheduled Caste Welfare: Department of Tribal and Scheduled Caste Welfare is the prominent agency designated for development of tribal areas and communities in the state. The department has the following main functions:

' To promote and protect the rights of the tribal communities in accordance with the spirit of the Constitution.

' To implement programs for the educational and economic development among tribals of the state. > To act as a channelising agency of funds to various line departments and agencies for tribal development interventions. > To coordinate and monitor funds application by various line departments in tribal areas.

The department is headed by the Minister of Tribal Welfare, who is assisted by a Secretary. The Commissioner of Tribal Welfare is the State level executive in-charge of the department.

The Institutional Arrangement of SC, ST, BC and Minority Welfare Department

Department

Minister

State Minister

Secretary

Commissioner

| District [ P roj ect |

AssistantDistrict 18) MADA Cluste Commissioner (12) Coordinator (4) Pocket (9)

57 The Department has district level offices in all 16 districts of the state. In TSP areas (12 districts out of 16) they are headed by the Assistant Commissioner whereas in non-TSP areas (4 districts), District Organisers are in charge of district level departmental activities. Block level offices of the department have been established in the 85 tribal blocks of the state and these have been placed under the Zila Panchayat under the three- tier Panchayati Raj institutional arrangement.

Creation and maintenance of educational infrastructure and services in tribal areas form an overwhelming part of the Department's work. It invests in construction of school buildings, recruitment and administration of teachers, management of hostels, scholarships and other incentives for improving access to schooling in tribal areas. Nearly 8545 primary schools, 1914 middle schools, 332 High Schools, 293 Higher Secondary Schools, 5 model schools, 3 Girl Education Complexes, II Sports Schools, 76 Post Metric Hostels, 597 Ashram Schools and 1030 Pre-Metric Schools are run directly by the Department in 85 tribal blocks all over the statelo.

In addition to education, the Department is the principal planning and coordination body for the Tribal Sub Plan through the Integrated Tribal Development Plan (ITDP) and MADA projects in tribal areas and clusters. Through its district level offices, the department monitors the flow and utilization of TSP/ MADA funds that are allocated to the various line departments.

Chhattisgarh Scheduled Tribe Commission: The ST Commission was set up by the Government to monitor the application of the state policy for STs. It is headed by a non- government representative and is located in Raipur. The main role of the Commission is that of a "watchdog", protecting legal, development and human rights of tribal communities and its principal functions include:

> Protecting constitutional and legal rights of STs. > Monitoring and vigilance of development programs for tribals and providing feedback for their improved implementation. > Making recommendations on reservation policy for public services and educational institutions.

The Commission has been accorded judicial powers of a civil court and it can initiate legal action accordingly through summons, investigations, and demand for documentation. Since its inception, the Commission has responded to a number of cases of atrocities against tribals and has been instrumental in bringing justice to aggrieved families. As an independent Commission it has a vital role to play in protecting the rights and dignity of tribals. A copy of the annual report of this project will be forwarded to the Commission for information and perusal.

Chhattisgarh State Minor Forest Produce Cooperative Federation: The Raipur based Federation was set up to free the tribals from exploitative practices of middlemen in the trade of Non Timber Forest Produce (mainly tendu patta) and ensure that the tribal collectors get a fair price. It is the apex body of the three tier structure comprising of Primary Societies and District Unions that undertake the procurement of tendu patta and now other minor forest produce also, such as Sal seeds, harra and gum. The Federation is

'0 Department of Education, Department of T ribal Welfare, 2001-2002

58 also diversifying to other high value forest based produce such as honey, aonla, inll, chironji, niahla and lac.

The interventions of the Federation have been instrumental in ensuring a fair return from tendiu patta collection, a large-scale seasonal forestry activity in the state. The Federation is poised for an expansion in its trade in other forest-based commodities. They are spatially well dispersed and have very large membership especially in villages bordering the forest area. Most members are from poorer section. The Primary Societies usually have substantial funds of their own and will probably be a major source of funds for the beneficiaries' contribution in this project.

Non- Government Organisations: Chhattisgarh, in comparison to other states, has a smaller presence and tradition of NGOs working in the field of rural development. The growing NGO sector now has a range of agencies/ groups working for tribal welfare. The non-government organisational sphere ranges from mainstream NGOs working with the state at one end to extremist groups committed to overthrow the state apparatus at the other.

The following three broad categories describe the range of non-government action among tribal communities of the state:

> NGOs: This category comprises of mainstream development and service delivery NGOs that access state and private funds for implementation of development programs and services. Such NGOs now exist in all the districts of the state; the recent encouragement of NGOs to participate in watershed management prompted many to set up new agencies. As most districts of Chhattisgarh have some tribal population and these groups are generally poor and deprived, NGOs work considerably with tribal constituents. However good NGOs with a proven track record and demonstrated capacity to work with the community are scarce. Attempts will be made in areas where good NGOs are available and are working and residing permanently in that area, to link them with the project by using their expertise for training and capacity building and also maybe by giving them membership in PFTs.

> Activist Organisations: Activist groups including mass tribal organizations focus on awareness generation amongst tribals regarding issues related to their rights and entitlements. These groups are guided by the conception that awareness and mobilisation of tribals is critical to their struggle for development, dignity and justice. Activist groups are promoted and led by people with very similar social profile to NGO leaders and in sense can be considered offshoots of the mainstream NGO sector. Chhattisgarh by now has some activist organizations. These activist groups display considerable ideological diversity- from Gandhian to Marxist. By and large, they believe that project based development work will not be effective unless the poor are empowered and the power based equations change. They are also generally opposed to foreign aid and as such are likely to oppose projects like DRPP. They however do engage in lobbying with the government and demanding responsive action and policy to benefit tribals. In case of issues of co-operation, co-ordination or clarity regarding the project and its implementation, the Gram sabha will be responsible for taking decisions and resolving such issues.

59 PoliticalGroups: Extreme leftist (Naxalite) groups committed to the overthrow of the state, have made inroads to some tribal pockets of Chhattisgarh viz. Dantewada, Bastar and other districts bordering Andhra Pradesh and Maharashtra and Surguja bordering Jharkhand. The Gram Sabha will be responsible for clarifying any doubts or confusions that may be raised by any such group regarding the DRPP project and its implementation.

3.3 Tribal Development Strategy for DRPP

As an identified poor and vulnerable group in all the districts under DRPP, the interventions with the tribal communities will bear both strategic and practical considerations in mind. The following are the goals of the strategy for tribal development within the project that hold good over and above the fundamental strategies of DRPP (participation, equity and decentralisation):

> Fair participation and representation at all levels of the project with a view to influence its decisions and outcomes for the tribal constituents

> Ensuring protection of social, economic and cultural interest of tribal communities in project interventions among both the tribal and the non-tribal groups

> Overcoming structural constraints to poverty and deprivation among tribals through direct socio-economic interventions of the project as well as induced actions under other available public resources and legal provisions of the Government

> Optimising productivity of community and privately held land, water, forest and livestock resources among tribal with a view to primarily ensure food security and generate sustainable surplus.

> Enhancing options for labour and improving conditions surrounding returns from labour as a growing basis for livelihood activity for largest number of tribal families in the region. > Rigorous capacity building of tribals' village level organisations and its leadership to plan, prioritise and place demands on the project services and resources.

Thus the tribal development strategy paper covers two inter-related aspects:

1. Institutional relating to participation, representation, decision-making and resource- allocation to tribal development. 2. Sectoral issues relating to project activities, interventions and investments relevant to tribal development within DRPP.

3.3.1 Institutional and Sectoral Interventions

Coverage, Participation and Representation:

Recognising that STs as a group run the risk of marginalisation and invisibility from project govemance, the following is proposed:

At the village level, the tribal strategy will ensure that:

60 I . DRPP will attempt to cover and facilitate the participation of all the tribal BPL families in a settlement. 2. In those villages where the ST population is above 30 percent, the tribal women living in that area will be encouraged to form the first CIG. This will demonstrate the priority of the DRPP and establish clearly the section with which it is most concerned. 3. Number of proposals approved, investments made in tribal CIGs, and the quality of performance and participation of tribal CIGs will count as key indicators of a village's performance and will influence the decisions related to future allocations in that village. There will be an annual plan, which will affect future allocations. Target area will get less money if the number of proposals, investments made and participation quality fall below a minimum threshold. This annual review will be done in a humane manner, so that the community is not penalised for bad performance for reasons beyond its control like natural disasters. This will be the thumb rule for deciding on the minimum threshold.

At the district level, it is envisaged that: 4. Coverage of tribal population, investments in tribal CIGs and performance will be monitored and reported and form part of staff/ PFT performance appraisals and reward systems. 5. An annual meeting of all tribal CIG representatives from within the district will be organised by the project office in order to collectively review the progress and problems faced by the project and its tribal partners. Separate budget provision of about Rs. 2,500/- per meeting will be made under the project for this. 6. The project office will remain alert to moves to subvert equal participation of tribal CIGs in DRPP. This will be carried out through extensive review with PFTs and the monitoring of norms specified under village level measures above. 7. In order to ensure adequate pooling of experience and formulation of shared strategies to work with tribal communities, it will be useful for the project teams to selectively function and interact at the regional level as well. Though there are no regional level structures envisaged in DRPP, project teams from five districts can be formed into one regional cluster on the basis of the homogeneity of tribal's socio-economic profile. There will be three such clusters two with five districts and one with six districts (Since there are 16 districts in the state). CIGs that perform well will be selected for cross visits so that healthy exchange of ideas can take place. Separate budget provision within the project will be made for cross visits. One cross visit within each regional cluster will be organised every year. Cross visits will begin from the second year of the project.

The DRPP State Unit will convene a six monthly regional meeting of district officers responsible for overseeing and monitoring tribal development activities. These meetings will be used to review the progress with tribal CIGs, exchange experiences and share strategies relevant to tribal development. There will be six meetings of this kind every year and separate budget provision has been made for each meeting.

61 At the state level, the DRPP State Unit will: 8. Monitor the project's tribal development strategy and programs in and across various districts. 9. Produce an annual public report, together with comparative expenditure, on the impact of DRPP on tribal people's lives and livelihood in the DRPP districts. The cost implication for the same will be minimal for such a report and these can be edjusted in the miscellaneous costs of the project.

3.3.2 Identification of specific activities

Tasks that relate with the tribal strategy need to be built into the fabric of DRPP operations and work strategies. Tribals constitute a vast number of the poor in the state and the areas they reside in also form the poorer areas in the state. However, unlike the general perception of tribals in India, in Chhattisgarh they are not marginalized or voiceless of powerless, and they are recognised both for their poverty and for their strengths and potential and political and social voice. The set of strategies and activities that would ensure that the project is sensitive to tribals would need to be a part of the overall approach and strategy of the entire project itself and not a separate set of interventions. However caveats and implementation operation guidelines must ensure that project is aware that although tribals are a large section, they need specific and more focussed effort.

There are a fair number of activities specifically identified with promoting development of tribals such as mentioned in the box below. But these will need to be in consonance with the overall implementation schedule and framework of DRPP, to ensure that (which maybe necessary in other states), tribals are not addressed as a minority group with problems of lack of voice and representation.

Some Identified Activities Identified

X As part of baseline study, set realistic minimum ST thresholds. * Identify key indicators for > Number of proposals approved > Investments made by CIG > Quality of participation of tribals. > Quality of performance of tribal ClGs * Set the minimum participation and performance threshold based on the above indicators (These may be different for different areas and groups). * Monitor performance of CIGs based on the minimum threshold * Annual review of performance and participation of CIGs * Design an annual allocation pattern sensitive to the performance of the CIGs. * Monitor participation results for CIGs and PFT staff. * Organise cross visits between CIGs within a regional cluster. * Biannual staff meeting to review progress and exchange experience * Annual tribal CIG representative meeting in each district to review draft report monitoring results and identify obstacles to tribal participation. * Annual Tribal Strategy Progress Report on impact on tribals with comparative expenditures by district and block. * Training and Capacity building of CIGs and PFTs.

62 3.3.3 Cost estimates andfinancing plan

I. Annual meetings of CIG representatives:- Annual meetings of the Tribal CIGs have been planned in order to ensure that sharing of information takes place amongst such groups. The cost for these meetings have been integrated to the total capacity building cost of the project. The cost for these are based on the following assumptions:- Assumptions:- > Total no. of CIGs = 24500 > 60 % of CIGs are tribal = 14700 > Cost per person per meeting will be Rs. 50. > The total cost for these meetings in the project period should not exceed Rs. 36,75,000 (14700 x 50) Note.- the cost of these meetings per year however, wvill depend on the number of ClGs formed each year.

2. Six monthly meeting of District Tribal Development Officers Assumptions:- > Total no. of CIGs = 24500 > 60 percent of the CIGs are Tribal = 14700 > No. of participants per meeting is 60 > Total number of people attending the meetings per year 320 > The unit cost per person per day will be Rs. 150 > Total cost for these meetings for five years will be 2,40,000 (320 x 150 x 5)

3. Cost Estimates for Cross Visits between successful tribal CIGs: The cost of cross visit has been included in the Training and Capacity building paper.

4. The project shall sponser studies on the following issues > Land and livlihood of the forest poor for which budget provision to the tune of Rs.20 lac. > Traditional systems of governance of tribal people for which budget provision of Rs. 20 lac has been made.

3.3.4 Human Resource and Capacity Development

Capacity building at various levels is an integral part of DRPP. However, the special development predicament of tribals in DRPP districts will call for special efforts to ensure that tribal community benefits fully from the project. Training and Skill Building Needs for tribal development exist at all levels of the project and these have been identified as under:

Level HRD Needs Potential Sources CIG Land Issues PFT Team (after it has been trained by officials of the Revenue Department)

Forest Issues / JFM PFT (after it has been trained by officials from Forest Department) PFTs Context of tribals in DRPP Government Department for tribal districts development.

Capable NGOs working in tribal areas

63 Land Issues Officers from Government Revenue Labour Issues Department

Labour Commissioner

Forestry Issues Forest Department

3.3.5 Programme and Sectoral Interventions

The District Level Social Assessments will be done to illustrate the social and economic constraints faced by the vulnerable groups that the project will target. Given the present socio-economic set up, it is expected that DRPP's main interventions will target the following sectors.

> NRM based livelihood development through agriculture, livestock, and forestry resources > Wage and Employment > Savings and Credit > Human Resource Development through training, awareness and skill building activities

Specific district level interventions in these will be designed keeping in mind the broad principles and pointers which are illustrated in Annexure 3.

3.3.6 Consultation

Due to the demand driven (all investments must be chosen by the CIG members and not by outsiders) approach in the project, the DRPP design itself meets the Bank policy requirement of ensuring plans, which gives "full consideration to the option preferred by the indigenous people affected by the project". However, where STs are a minority in a district or village, their views may not always be effectively heard in decision-making. Such concerns have been addressed before finalising the strategy paper. The Government held public consultations to ensure that the draft of the tribal strategy paper is both feasible and acceptable to indigenous people.

Before the consultations, advance notice or advertisement (giving people a convenient location where they can read the draft paper in an appropriate language) were given to ensure that people are aware of the opportunity to learn about the tribal development strategy and comments are forwarded on the project. The public consultation were held in 3 phases with phase I restricted to Govt officials, NGOs. And the phase 2 and 3 involved direct interaction with the beneficiaries viz. villagers.

> Phase 1 from March 19-20 The invitee included Mr. Amitesh Shukla Hon. Minister of Panchayat & Rural Development, Mr. Tuleshwar Singh Hon. Minister of state and Mr. Ramdayal Uike Hon. Member, S.C.S.T. Commission.

The M. P. DPIP team including project co-ordinator, Smt. Gauri Singh, Finance Controller Mr. Jitendra Singh & PFT,Co-ordinator Shri G. S. Tekam.

64 The participants included members from PRIs, Government Officers, NGO personnel and people's representatives from various districts.

The CG team included Secretary, Panchayat & Rural Development Mr. M. K. Raut, Deputy Secretary finance, CEOs of Zila Panchayats and block Panchayats.

The official raised issue as how the programme shall bring about upliftment and empowerment of disadvantage section along with ensuring transparency in execution with peoples participations and involvement of PRI, to which the Secretary P&RD and Project Director MPDPIP informed the house that the project will institutionalized the core value of peoples participation empowerment, decentralization, leaving through experience and transparency with collaboration and co-ordination, further as the funds are placed directly with the poor especially tribal, women threby providing them ample opportunity for development.

) Phase 2 and3from 25-26Augutst & 16-18 November

Villagers of Kanchanpur, Semraha, Andhiyaar Kho Panchayat, Gorella Block. Attendees: Govt officials, NGO representative, World Bank representative. In this phase the main concern of the villagers were, by when the project shall be operationalised and what kind of activities can be taken up under the programme. Further as they were poor they had difficulty in raising 5% initial amount.

Their concerns were adequately answered by the state represewntative that under this programme any trade / activities can be undertaken to their convenience and where training is required, the programme has ample provision for it. Further 5% initial amount, can be raised as there is still 5 to 6 month for the programme. To start, Hon. Minister, S.C.S.T. Commission and the villagers can save by working in programme like Food for Work initiated by the State Govt. Apart from which, all the villagers can pool in money so that one or two CIG can be formed, which can return the money back to the villagers subsequently.

The advertisement, minutes of the consultations and the feedback generated by the same done in the pilot project district, Bilaspur are appended in Annexure 4.

65 Annexures

Page No. 1 List of Scheduled tribes in Chhattisgarh 66 2 List of Primitive tribes in Chhattisgarh 67 3 Expected District Level Interventions 68 4 Presentations, Village Consultations and Workshops Held 73 On DRPP (public consultation) Appendix 4a Presentation on tribal development Strategy for village 93 consultations (Hindi version) 4b Presentation on Environment Management Framework for 96 village consultations (Hindi version) 4c Baseline Data-Household Survey 99

66 Annexure 1 List of Scheduled Tribes in Chhattisgarh

1. Agaria 2. Aandh 3. Baiga 4. Bhaina 5. Bharia, Bhoomiya, Bhiuhar, Bhunia, Faria, Pamila, Pando 6 Bharta 7. Bhil, Bhilala, Barela, Ptaclia 8 Bhil Meena 9. Bhuijia 10. Bigar, Beayar 11. Bhingiwar 12. Birmul, Birhor 13. Damor, Damrya 14. Dhanwar 15. Gdaba, Gadba 16. Gond, Arkh, Aarkh, Agariya, Asur, Badimariya, Bada Mariya, Bhatola, Bhimma, Bhuta, Koyla Bhuta, Koliya Bhuta, Bison Hornmariya, Chotta Mariya, Dandami Mariya, Dhuruva, Durva, Dhoba, Dhooliya, Doorla, Gayki, Gatta, Gatti, Gaeta, Goad, Gowari, Hill, Mariya, Kndra, Klangr, Khatola, Koitar, Kiya, Khikhar, Kucha Mariya, Buchki Mariya, Madiya, Mariya Mana, Maninewar, Modhya, Mogiya, Mondya, Mudiya, Muriya, Nagarchi, Nagvanshi, Ojha, Rajgond, Sonjhari, Ihareka, Thatiya, Vade Mariya, Droi. 17. Halbi 18. Kamar 19. Korku 20. Kawar, Kavar, Kiur, Chekha, Rathia, Tanvar, Chattri 21. Khervar, Kondar 22. Kharia 23. Kond, Kand 24. Kol 25. Komal 26. Korku, Bovchi, Movsi, Nihal, Nahul, Bodhi, Bodiyo 27. Korva, Kodaku 28. Majhi 29 Majhwar 30. Maawasi 31. Munda 32. Nagasiya 33. Oraon, Dhanka, Dhangadh 34. Pav 35. pardhan, Pathari, Sroti 36. Pardhi, Bhaliya, Bhoaliya, Chitta Pardhi, Langooli, Pardhi, Faans Pardhi, Shikari, Takankar 37. Prja 38. Sahariya, Sahwariya, Sahria, Sahaeriya, Sosiys,Sor 39. Saonta, Soonta 40. Saur 41. Sawar 42. Sonra

67 Annexure 2 List of Primitive Tribes in Chhattisgarh

I . Abujhmariya 2. Baiga 3. Phadi Korwa 4. Bhariya (Patalkot) 5. Sahriya 6. Kamar 7. Bihor

68 Annexure 3 Expected District Level Interventions

3.1 Agriculture and Allied Activities

Investments in sustainable land and water resources development: Tribal farmers practice cultivation under adverse and uncertain conditions. The small land holdings are poor quality, marginal and rainfed. There is poor potential to invest in the improvement of land productivity thus returns are low and unassured. In order to close the investment gap and contribute to long term, sustainable improvement in productivity activities, the following may be considered as priority CIG activities: > Land levelling, reclamation, bunding and fertility management of private holdings. > Common and/or individual farm family level water resource development through wells, harvesting structures and creation of additional provision for localized protective irrigation.

CIGs will be encouraged to access technical guidance from within the project or externally for the planning and implementation of these proposals.

Improving Extension Services and Input Provision: Agriculture extension services are rather underdeveloped in Chhattisgarh and these are at their thinnest in locations where tribal cultivate their marginal lands. There is little technology dissemination and adoption by farmers and basic provisioning of seeds and inputs is absent. DRPP will support proposals from CIGs of tribal resource poor farmers interested in undertaking any of the following or allied activities, if received.

> Identification and hiring in of village based Para-Extension Workers (PEWs) by ClGs for providing counselling and technical guidance to tribal farmers. These PEWs will need to be equipped with basic technical information and will serve as a link between farmers and sources of inputs and technology. Para Extension Workers may also be identified by more than one CIG in order to ensure more efficient and cost effective coverage. The DRPP project team will help in building the capacities of such village based workers identified and/or recruited by CIGs through linking with sources of training, technology and inputs. > CIGs may formulate proposals for group-based provision of draught power and agriculture implements, which may be supported by DRPP. > CIG may also take up the management of decentralized seeds and fertilizer retail and distribution outlets undertaking collective procurement and timely distribution and will hence, overcome cost disadvantages.

Promoting diversification to horticulture and livestock: Agriculture change strategies among small, marginal and resource poor farmers cannot rest alone on improving crop production. The limits to land holdings make it difficult to stretch crop husbandry beyond a level and hence, diversification becomes imperative. Inability to invest and lack of access to technology hampers the move on small farmers' part to diversify their land- based production. DRPP will assist in closing this gap if proposals are received from CIGs of tribal farm families for horticulture and livestock development.

There are well-established experiments in maximizing returns from limited land, water and livestock resources and these need to be adapted at least on a pilot basis in the DRPP

69 districts. The strategy focused on pooling together resources for inputs, diversifying to horticulture and livestock rearing and ensuring on-farm value addition to production. It combined private initiative with collective decision making in order to optimise use of resources, maximize group returns and derive benefits from scale. Elements of this initiative may be studied further by cross visits by interested and willing CIGs.

3.2 Food Security

Maximizing food security among tribal families will receive encouragement from the project on receipt of such proposals and will form the core of its support to agriculture and allied interventions by the farmers organized as CIGs. In order to protect the tribal population from food shortage and hence turning to "distress" purchases in the lean seasons, the DRPP will respond favourably to CIG proposals and actions in the following direction:

> Revitalizing PDS in tribal villages. This will entail liaisoning by the DRPP project teams together with, lobbying by CIGs with local administration.

' Establishment of community managed grain banks also to be used for purposes of seed supply.

> Bulk purchase and stocking of food grain through the use of gram kosh generated by CIGs.

3.4 Forestry

A large number of Non Timber Forest Produce (NTFPs) are collected by tribals across the state as in the DRPP districts. The most important of the NTFPs are nationalized and these include tendu patta, sal seeds, gum and harra. Collection and marketing of nationalised products is carried out by the Chhattisgarh State Minor Forest Produce Cooperative Federation. The important non nationalized forest products include imll, kasa, awla, kusum, lac, honey, chiraunji, mahua flower, bahera and safed musli, all of which are found in the DRPP areas of tribal concentration. Typically, the market rates for these products come down at the time of collection and increase immediately after it.

DRPP will be willing to extend the support to tribal CIGs for enhancing returns from forestry activities on receipt of such proposals through the following kind of interventions:

> Advancing capital to CIGs who wish to stock and store local NTFPs at the time of collection. This will ensure that the collectors are able to release their produce at a more favourable time and gain better prices.

> Making linkages for technical advice and providing financial support for value addition of NTFPs through simple processing.

> Ascertaining market linkages for NTFPs.

Market interventions surrounding NTFPs inherently carry some risk and to minimize this, it is proposed that NTFP based proposals are encouraged selectively and appraised

70 carefully by the project for their viability. The project may make pilot grants to CIGs in the initial year with a clear emphasis on improving learning and experience building in NTFP operations both at the project and CIG level.

3.5 Land alienation, security of tenure and ownership

All land based interventions such as proposed in DRPP assume that the tribal families have secure access and entitlement to land. This is not true in many cases and the tribals (together with other vulnerable groups such as SCs) operate land under persistent threat of dispossession from powerful landed upper class elite, insecure tenure arrangements, unfair share cropping systems pitted against the tenants. These unlawful practices are a manifestation of the social inequities and they serve to keep the rural poor in chronic poverty and deprivation. Further, these erode the stakes that the poor have in improvement of their land resources and present the biggest challenge to long-term change in their status.

Yet there are issues that can be addressed by a sympathetic and sensitive DRPP project staff. Access to Government revenue records can be made easy by a process of awareness raising and training of social animators in revenue record keeping. Action on these fronts is possible without any serious intra community conflict. It will help in building the credibility of DRPP in its target segment and will establish it as different from other programmes.

It is therefore proposed that:

> DRPP project teams will be sensitised to land issues in their respective regions. Residential trainings focusing specifically on land issues will be organized. An agency with a good record of working on land issues will be invited to provide resource support. If any field team has the inclination to take up more intensive work on land issues, it will be supported by the top management. Work on these issues will be counted as legitimate project work.

> The PFTs will be required to survey instances of land alienation and exploitative tenurial practices pitted against tribal farmers in their clusters. This data may be used in formulating realistic plans for investments under DRPP and for any long-term action by the project for working on these issues. PFT members may be sensitised to reporting exploitative practices.

> The project teams may liaison with local administration for land allotment to landless labourers and assist CIGs in making representations for the same.

3.6 Wage labour and Employment

The analysis of occupational classifications of tribal population in the state as a whole and for DRPP districts in particular, clearly demonstrates that wage labour is a major component of livelihood for tribals. Limited land resources and virtual landlessness among large sections makes it imperative for them to seek wage labour on farms in cities

71 and industrial areas further afield. Reports indicate that while Gond and Kanwar tribes own some land, others are largely landless.

Deep-rooted social inequities and political realities work towards extensive exploitation of tribal labour. Wage rates are low and differentiated between men and women. Even in agriculturally advanced areas, immigration keeps the wage rates depressed. Widespread incidence of bonded labour has been reported both from Janjgir-Champa and Raipur districts. This is an area in which Government poverty alleviation programmes do not normally intervene.

Migration is a common strategy for survival. Migrant workers toil under harsh and difficult conditions. While there exists Government legislation to ensure minimum rights of this category of workers, this is observed more after it is breached.

It is hence, recommended that: -

> Project teams of DRPP are sensitised to labour issues through training programmes and resource material on the subject. Special programmes should be organized for providing training in identification of bondage and minimum wage issues so that the project teams are equipped to respond to situations that will need action at the CIG level.

> Survey and identification of tribal families in virtual bondage or indentured labour will be made by the PFTs. Incidence of labour among children will be particularly identified and acted upon.

> Careful costing of labour component in CIG proposals will be ensured such that labour is not under priced and reflects appropriate returns. Proposals from tribal CIGs, which entail a labour component and seek to improve productive assets of the members through the use of own labour, will be particularly encouraged.

> The provision of contribution in development projects is often misused to pay lower than official minimum wages to labourers. DRPP should develop a contribution policy that does not leave any scope for this practice. It is recommended that there should be no contribution in kind for public works. All contribution should be in cash prior to start of work. For individual works also a policy should be devised which does not allow owners to pay lower than the minimum wages to outside labourers.

> Pilot studies will be undertaken in selected blocks to understand the movement of labour and to identify possible strategy for pushing up wage rates.

e In clusters where there is significant migration for wage labour, options to alleviate the hardships associated with migration will be considered. Thus, if children are also migrating and therefore not able to access a school, a mobile school may be supported. Similarly, if any special support is needed for the children and women who are left behind, this may be provided.

72 3.6 Education and Health

Education and health are priority areas of social development for tribal communities and gains in these will result in long-term socio-economic change. There are other significant initiatives in these sectors such as DPEP in education and RCH- in public health and DRPP will not duplicate efforts or investments made under these programmes.

As a general principal, such proposals from CIGs that seek funds for education and health related activities would be justified if they represent a genuine gap in the available services and resources. However, as an area programme with a wide village level institutional base, DRPP will also be in a good position to contribute to the effectiveness of the existing programmes in the following manner:

> Project teams will assist in dissemination of information on these programmes to CIGs through meetings. Plans developed by these programmes that relate to the DRPP villages will be collected by the DRPP project teams in order to be informed and identify opportunities for linkages and collaboration.

> As a critical contribution in the health sector, DRPP will respond favourably to CIG proposals for provision of safe drinking water in tribal settlements. Project teams can assist CIGs to source other existing schemes for provision of safe drinking water. Similar support may be made available by the project teams in linking up with safe motherhood services being provided by existing departmental and /or special projects in the DRPP areas.

DRPP will invite and encourage NGOs to initiate innovative, need-based activities to close the gap in educational and health services in tribal areas. DRPP may help the NGOs access funds and help them to link up with CIGs as the village institutional base for their work.

73 Annexure 4 Presentations, Village Consultations and Workshops Held On DRPP

4.1 Advertisements sent and Presentations made for Village Consultations

Before the consultations, advance notices/advertisements were given to provide adequate information and opportunity to the people to learn about the tribal development strategy and comment on the project. The advertisements were sent earlier and the same presented again at the Village Consultations. Enclosed below are the summaries of the tribal development strategy and Environment Management Framework presented to villagers for the village consultations.

Note: Please find presentations and advertisements in Hindi appended in Appendix 4a and 4b.

4.1.1 Tribal Development Strategy -A Suntmary for Village Consultations

DistrictRural Poverty Project (DRPP) - An Introduction

The DRPP is a people centred, participatory, poverty alleviation programme that targets the poor and disadvantaged section of the population in all 16 districts of Chhattisgarh. The implementation of the project is based on an innovative approach that highlights demand-sensitive development, promoting and supporting effective decentralised governance and addressing obstacles to income security.

The salient features of the project are: > Members will be selected for the project through a process of wealth ranking done by the villagers in the Gram Sabha assisted by the Project Facilitation Teams. > Formation of Common Interest Groups (CIGs) : A minimum of five members will form a Common Interest Group (CIG). Tribal and women will be encourgaed to form CIG. > A provision of Rs. 30,000 for every selected family has been made for the total project period of five years. > The PFTs will also assist the CIGs in conceptualizing the Sub projects. > There is no set scheme. But priority will be given to such Sub-projects which can improve the economic status of Common Interest Groups. The CIGs benefiting from the Sub-project have to contribute to over 15% of the investment cost, out of which the CIG must deposit 5 % of the total cost of the project in cash in the starting of the project. The CIG has to give another 10 % of the total cost of the project for village development plan. This money goes into Apna Kosh. This amount is to be paid ones the sub project ends. This 10 % can also be paid in the form of labour. The amount deposited in the Apna Kosh will not be used in the project period (DRPP). In fact they will be put into fixed deposit for future village development work. > Projects like tobacco growing or liquor making etc. will not be supported by the project. > Every project has to go through an Environment Impact Assessment. > The Gram Sabha is the final body for sanctioning the Sub-projects. > The project will make funds available for investment in the village, based on the standard end impact of the work done.

74 Significance, Role and Participationof Tribals

Chhattisgarh has a tribal population of 32.45 percent (Census, 1991). Tribals are concentrated over nearly 65 percent of the states area. The state is home to several tribes - small, large and even those nearing extinction in numbers - and it presents among the most challenging scenario for human development anywhere in the country.

Tribal communities are one of the most vulnerable and marginalised groups. They face social diversity, oppression and economic hardships in various forms. They have to contend with unequal and insecure access to productive resources and share poor participation in governance. Tribal areas and communities largely remain underserved through public systems - both on account of supply (resources fail to reach the target or programmes fail to bring long term change) and demand (poor ability to demand and elicit resources and services) factors. Poor educational achievements, vulnerable health status and insecure livelihood base have further contributed to their precarious existence in Chhattisgarh. The number and status of tribals, thus warrant specific attention to aspects of their participation and intended benefits from DRPP.

As an identified poor and vulnerable group in all the districts under DRPP, the interventions with the tribal communities will bear both strategic and practical considerations in mind. The following are the goals of the strategy for tribal development within the project that hold good over and above the fundamental strategies of DRPP (participation, equity and decentralisation):

> Fair participation and representation at all levels of the project with a view to influence its decisions and outcomes for the tribal constituents

> Ensuring protection of social, economic and cultural interest of tribal communities in project interventions among both the tribal and the non-tribal groups

> Overcoming structural constraints to poverty and deprivation among tribals through direct socio-economic interventions of the project as well as induced actions under other available public resources and legal provisions of the Government

> Optimising productivity of community and privately held land, water, forest and livestock resources among tribal with a view to primarily ensure food security and generate sustainable surplus.

> Enhancing options for labour and improving conditions surrounding returns from labour as a growing basis for livelihood activity for largest number of tribal families in the region.

> Rigorous capacity building of tribals, their organisations and leadership will be concentrated on to plan, prioritise and place demands on the project services and resources.

At the village level, the tribal strategy will ensure that: > DRPP will attempt to cover and facilitate the participation of all the tribal BPL families in a settlement.

75 > In those villages where the ST population is above 30 percent, the tribal women living in that area will be encouraged to form the first CIG. This will demonstrate the priority of the DRPP and establish clearly the section with which it is most concerned. > Number of proposals approved, investments made in tribal ClGs, and the quality of performance and participation of tribal CIGs will count as key indicators of a village's performance and will influence the decisions related to future allocations in that village. It is crucial to include tribal families in the CIGs and the project. > There will be an annual plan, which will affect ftiture allocations. Target area will get less money if the number of proposals, investments made and participation quality fall below a minimum threshold. This annual review will be done in a humane manner, so that the community is not penalised for bad performance for reasons beyond its control like natural disasters. This will be the thumb rule for deciding on the minimum threshold.

4.1.2 EnvironmentManagementFramework -A Summaryfor Village Consultations

The project's development objective is to improve opportunities for the poor and vulnerable, especially women and tribals, to meet their own social and economic development objectives. To achieve this objective the project would: (i) create infrastructure and income opportunities for the rural poor; and (ii) empower active groups of disadvantaged people and support village governments in becoming more responsive and effective in assisting them.

The project has two components: (1) Community Investments and (2) Institutional and Human Capacity Building. The project would provide matching grants to groups of disadvantaged people to finance priority, small-scale, investments identified by the groups themselves.

Groups would be composed of people who come together around a common need (Common Interest Groups (CIG)), and could be as small as five people or as large as the entire population of several villages (for larger multi-village projects).

Environment Management Framework

As part of the process of project formulation, an Environmental Management Framework is required by The World Bank to be prepared to address any environmental issues that may arise during implementation of the DRPP project.

The purpose of the Environmental Management Framework (EMF) is to ensure that neither the livelihoods of the poor nor the environment are compromised. It is to explore possibilities of making the efforts to improve livelihoods as well as conservation of the environment complementary so that there are sustained benefits from the developmental activities initiated.

Based on experiences elsewhere in similar projects in India it can be expected that the sub-projects that would emerge in the DRPP would be in the areas of livestock development, minor irrigation, agriculture development, forest products value addition, construction and micro enterprises.

76 The physical, biological and social impacts of the probable sub-projects have been predicted and their mitigative measures have been recommended in this report.

The scope of this report is as follows: > To provide an overview of the possible environmental impacts and mitigation measures for sub-projects that could emerge from the DRPP > To design an Environmental Management Framework (EMF) for the project that will include details of the environmental assessment procedures and tools, the capacity building requirements and the institutional arrangements.

EnvironmentalAssessment of Sub-projects

Based on the scale and nature of sub-projects currently emerging from DRPP projects elsewhere in the country, the screening procedure for the DRPP has been designed. Four categories of screening are suggested:

> Category D: A detailed environmental assessment is not required for sub-projects. For example a sub project which involves skill development on tailoring is a programme component focussing only on training which involves no use of natural resources.

> Category C: The proposed sub-project has either marginal or short-term impact on the natural resources or environment (such as a small scale cooking operation that consumes fuel wood).Environmental Review is suggested. This will be done by the Project Facilitation Team (PFT).

> Category B: If the proposed project has a significant or irreversible or long-term negative impact (such as bore well leading to depletion of ground water), Limited Environmental Assessment (LEA) is suggested. This will be done by the District Environment Team (DET).

> Category A: If the proposed sub-project has a severe adverse environmental impact, that cannot be mitigated within a feasible timeframe and budget, Environmental Impact Assessment is suggested. This will be commissioned by the State Project Unit in consultation with the State Environment Agency.

There is also a Negative list of Projects. If the proposed subproject falls in this list, it will be rejected. For example, a dam (old or new), of lOm or more in height will not be permitted.

Training

Training will be given at various levels in using the environmental assessment tools. The training will involve an initial orientation workshop, a main training programme and refresher-training programmes. A session on the EMF will be part of the induction training for the CIGs. Each PFT will organize environmental awareness programmes for the communities at least once every year.

InstitutionalArrangements

77 At the State Level the Project Unit will be overall responsible for implementation of all project components. At the district level the District Project Support Unit will be in- charge of implementation. The District Environment Team (DET) will be drawn from the PFTs and a nominee of the Panchayats. This DET will undergo intensive training from the state Environment Agency. The PFTs will be responsible to ensure collection of information for environmental screening during subproject preparation by the CIGs. Where sub-projects may require Limited Environmental Assessment or ELIA, the PFT will refer the matter to the DET and ZP and further to the state Environment Agency.

Environmental Suipervision and Monitoring

Environmental supervision would be carried out at two levels. At the district level, the ZP staff would be required to verify that PFTs are correctly using EMF guidelines and outputs, and the environment mitigation measures prescribed in the approved sub-project are implemented. At the state level, the Environment Agency will conduct six-monthly supervision of the EMF, selecting a sample of subprojects from different categories of environmental assessment.

A full presentation and discussion will be held regarding this project with the gram sabha. Kindly be present to share your queries, clarifications and opinions regarding this project and its approach.

4.2 Consultations For Chhattisgarh District Rural Poverty Project (DRPP), 2002

Consultations were conducted in three phases

Phase 1-March 19-20, 2002 > Intensive workshop with NGOs, MPDPIP, NGOs form CC and others, Govt officials.

Phase 2-August 25-26, 2002 > Consultations with Gram Panchayat in Bilaspur with selected villages under DRPP pilots.

Phase 3-November 16-18, 2002 > Hamlet and village consultations in Pendra and Gorella blocks of Bilaspur

4.2.1 PHASE 1- March 19-20, 2002: Workshop On Cihhattisgarhi District Rural Poverty Project (DRPP), 19 - 2e March 2002, Organised By The Department Of Panch(ayat & Rural Development

Representation The workshop was attended by the Chief guest, Hon. Minister of Panchayat & Rural Development, Mr. Amitesh Shukla, Hon. Minister of state, Mr. Tuleshwar Singh and Hon. Minister, S.C.S.T. Commission, Mr. Ramdayal Uike.

The M. P. DPIP team including project co-ordinator, Smt. Gauri Singh, Finance Controller Mr. Jitendra Singh & PFT,Co-ordinator Shri C. S. Tekam.

78 The participants included members from PRIs, Government Officers, NGO personnel and people's representatives from various districts.

The CG team included Secretary, Panchayat & Rural Development Mr. M. K. Raut, Deputy Secretary finance, CEOs of Zila Panchayats and block Panchayats.

Issues of concern > Prior efforts in similar programmes : In the inaugural speech, the Secretary, P&RD said that so far, the programmes implemented previously have had limited success in reducing poverty because of paucity of funds through DPIP with assistance from the World Bank an effort has to be made to attack poverty. > Hon. Minister of state, P&RD in his speech said that the programme being implemented for the upliftment and empowerment of poor tribal should address the following aspects during the implementation of the programme: V Transparency in planning and execution / Ensure people's participation / Involvement of Panchayati Raj Institutions.

> The programme coordinator of MP DPIP, Mrs. Gauri Singh gave the guidelines information on implementation and objectives and approach of the programme. The project will institutionalize the core values, which are:

V Peoples' participation / Empowerment / Process orientation / Decentralization / Learning through experiences / Transparency and collaboration/cooperation

About the project approach.

In order to achieve its objectives the project has adopted the following approach: > Empower disadvantaged groups by putting funds under their direct control group bank accounts. > Ensure that groups, in view of their need, can select and develop Sub-projects by taking various possibilities into consideration. They will not be restricted to use project funds for some specific activities only. However, the activities on which funds are utilized must fulfill the objectives of the project. Community will be free to seek technical support from government and non-government persons & organizations. > Support and strengthen groups having common needs and problems. > To ensure group participation, the decision making process will be closely monitored and approval to Sub-projects will be given only when decision-making process is democratic, healthy and participatory in nature. > To develop participation and feeling of ownership, create credibility and foster a culture of local financing, cost recovery and user charges by requiring community cash contributions for Sub-projects and creation of Group and village funds; > Strengthen local governments at the district and village levels by giving them responsibility for the budgeting, its disbursement and monitoring of group activities.

79 Ensure transparency, widespread information, and communication and learning about the project and groups' performance, successes and failures through formal and informal mechanisms created by the project.

Feedbackfrom NGO representatives

Smt. Hemlata Sahu, Mahila Shiksha Kalyan Evam Prashikshan Parishad For selection of beneficiaries a baseline study and wealth ranking is being done in the Gram Sabha. This could be done on the basis of the IDEP implementation and evaluation parameters, IDEP being mainly based on economic development. > Participation of women in the project should be ascertained. > The implementation of the project should be done through public participation. > The process of approval by the Gram Sabha is important. > The income generating schemes should be on the basis of the demands of the people.

Smt. Satya Bhama Awasthi, Vasudha Mahila Manch > People from similar socio economic situations should be brought together in the CIG. > Selection cannot be made on the basis of the BPL list since many a time it does not cover the people who may be in actual need. A special list of actual people in need, needs to be made. > Need to clarify the conditions under which a grant of Rs. 30, 000 is given, and the 5 percent advance is not justified for a poor person. It could be given in the form of labour, materials etc. that could be used by the beneficiary. > Apna Kosh needs specific descriptions on how and when it will be utilised. > It is essential to mention how many minimum or maximum members could form a group. > In a tribal area the project must be sensitive to the basic needs and the culture of the area. > Further clarification is needed on the role of PRIs in the project, the process of monitoring and evaluation of the same. > It has been seen in all govemment projects that no social and cultural aspects have been considered while launching the project, especially for women. These aspects need to be taken into consideration. > The out line of the project seems promising but in the later stage much government interference might discourage the beneficiary. More public participation and less government interference needs to be ensured. > Over and above economic planning, planning specially on education, health, social crime, torture against women and children, clean environments, prohibition against drugs etc. needs to be looked at along with economic development to achieve the goal.

Shri Vijay Tiwari, Gram Sewa Sansthan > Sending a notice to the Sarpanch/Secretary of the Gram Panchayat and displaying it at public places is an option. But one cannot be sure that everyone will be aware of it, there fore a communication strategy is a must. > The process and the means of communication adopted must be in response to the reality of the area, as this will determine the success or failure of the project. > The implementers of the project must have a complete understanding of the project. It must be ensured that the implementers carry out the baseline survey and the consequent categorization and finalization of the beneficiaries.

80 > It must be ensured that the project process is bottom up i.e. from the beneficiary to the state level. > It must be ensured that people from similar economic situations and with similar interests come together. > After the groups are formed, they must be adequately trained and empowered, according to their needs and understanding. > It is proposed that a separate team for the project is instituted.

20th March 2002

Initial discussion started with "Criteria for selection of Block". Major suggestion from the participants were as follows: > Priority to Tribal Blocks. > Focus on backward classes and literacy level. > Priority to unreachable forest areas. > Priority to poor rather than particular caste/class. > In line with the MP DPIP. > Develop one model village.

Further four groups were formed among the participants to discuss four major issues for successful implementation of the programme:

> On Tribal strategy. The group focussed on the relevance of entry-point activities especially for the tribal dominated areas as:

/ Tribals have a rich culture and heritage $ The tribes have different style of working / The local dialect varies from non - tribal areas v/ The tribals have a strong social structure but lack in economic advancement.

The discussions led to the conclusion that there is a need to address the tribals first but at the same time other poor people should also benefit from the DRPP programme. Hence each of the CIG members should be made aware of the programme and related activities so that the group becomes self-sufficient.

> Role of NGOs This group suggested that among the three members of PFT if two are from G.O. then third one should be NGO personnel.. During the discussion the following points were highlighted:

/ Good NGOs should be given opportunity / Regular training of the PFT members should be conducted. / PFT while working at the district level has major responsibility of monitoring. / Women members from NGO should be given preference

> Gender strategy: The group came out with the following suggestions:

/ 80% of the groups (CIG) formed should be of women.

81 V Priority should be given to the widow, divorcee, dependent, landless, and physically handicapped persons. V While selecting the activities stress should be on women - oriented activities that will lead to their empowerment. / There should be no compulsion on women for 10% contribution.

> Comniunication: According to this group, the local people should be considered as primary source and the data needs to be collected through:

V PRA technique / House to House visit V Group - meetings of men & women (combined as well as separate) V Wealth - ranking V Training of the CIG (common interest group) as well as PFT (project facilitation team) members along with the people's representatives. V Continuous interaction between the PFT & CIG members.

82 4.2.2 PHASE 2 - August 25-26, 2002: Consultations With Gram Panchayats In Bilaspur With Selected Villages UnderDRPP Pilots.

4 2 2a Notice and information circulatedin villages before the meeting

All the villages are hereby informed that Chhattisgarh Government has proposed to launch the DPIP Programme with the help of the World Bank. The main features of this programme are as under:- I. This is an effort of the government to reduce the poverty of villages, in accordance with the needs of the people. 2. The main target group of the project is the poorest of the poor, especially tribal and women. 3. The main aim of this project is to provide them with opportunities of self- progress, which will lead to income enhancement and improve their social status. 4. The process employed in this project will include, establishing a dialogue with the village people, forming groups, enhancing the capacities of and strengthening the groups, preparation, implementation and evaluation of sub-projects including budget preparation and allotments. The project will emphasise on learning by experience. 5. A process of wealth ranking will be followed among the families in the village and 70% of the poorest families will be selected as beneficiaries. In a predominantly tribal or schedule caste village, all the families will be selected in the project. 6. Through the project, every poor family will be entitled to get a maximum of Rs. 30000. 7. Beneficiaries of this project, will form groups of five or more people, and jointly select the economic activity they want to carry out. The maximum membership of the group is not restricted. 8. The economic activity/project selected by the group will have to be sanctioned by the Gram Sabha. 9. Every group will have to contribute 5% of the demanded grant, for their sub- project. I0. On completion of the sub-project, the group will deposit 10% of the income into the Apna Kosh account, for use in village development. 11. To ensure transparency in implementation of the group's activities, every group will maintain a cashbook and a register, and will have to present their expenditure details to the Gram Sabha from time to time.

4.2.2b Village consultations

1. August 25'h 2002 Village - Kanchanpur, Block - Kota

People: Villagers of Kanchanpur

Government Representatives: Mr. M.K. Raut, Development Commissioner. Mr. Anil Rai, CEO Bilaspur CEO Janpad - Kota Mr. Ranjan Jha

World Bank Representatives: Mr. Luis Constantino

83 Ms. Madhavi Pillai Ms. Varalakshami

NGO Representatives: Gram Sewa Sansthan, Vasudha Mahila Manch, Mahila Shiksha Kalyan Evam Prashikshan Parishad Sanket Development Group.

Major issues raised and addressed during the meeting:

After giving a brief introduction to the project, one of the issues that were raised by Mr. Raut was that of skill development and of realising the skills that already exist with people. A number of skills were identified by the gram sabha as skills that already exist amorigst people. Some of them were:- - Fishery - Goatery - Forest related skills - Poultry - Construction of Stop dams - Construction of Water pond - Construction of roads A point was, thus, put up by Mr. Raut that those projects should be identified of which people already have some knowledge and skill. He also added that projects which are viable in nature should be given priority. However, the decision related to the project lies completely with the people and members of the CIG and all sub projects are approved by the gram sabha.

2. August 26 th 2002 Village - Harradi, Gram Panchayat - Harratola, Block - Gorella

Representations of various groups

People: Members of CIGs form pilot villages and members form other villages of GorelIa

Government Representatives: PRI Representatives, Janpad Panchayat members, Mr. Anil Rai, CEO Bilaspur

World Bank Representatives: Mr. Luis Constantino Ms. Madhavi Pillai

NGO Representatives: Sanket Development Group.

Major issues raised and addressed during the meeting:

People from II villages had gathered to welcome the World Bank team. Out of these I I villages, only 3 come under the pilot project.

84 54 CIGs had already been formed in the gram panchayat and 31 had already opened their accounts. Some of the groups have already deposited the whole of 5 % that they are supposed to contribute towards the sub project. / Some people had taken loans on interest from other villagers for depositing this amount. They were advised by Mr. Rai, CEO Zila Panchayat to return the money to their creditors as soon as possible and to deposit money only when they have their own. V There was a lot of anxiety amongst people regarding when the project is going to start. Mr. Rai advised people that they should be patient as the project may take 4- 5 month in reaching the implementation period. v Most of the groups had taken up Animal husbandry esp. goatery as their project activity. Some other sub projects that the CIGs had decided were brick kiln, vegetable shop, kirana / ration shop, poultry, thread making, auto rickshaw, tube wells, Sangeet Mahavidyalaya, etc. V Some people also expressed desire to get the money on an individual basis. They were advised by Mr. Anil Rai that they can take money under some other scheme. Mr. Rai also gave information regarding how the common land can be used for growing fodder in case many groups are taking up activities such as goatery, dairy, etc.

4.2.3 PHASE 3-November 16-18, 2002: Hamlet and village consultations in Pendra (villages Jumdi khurd, Amadand, Navagaon and Jliabar) and Gorella blocks (village Andliyaar Kho), Bilaspur

No. of villages covered 5 (Jumdi Khurd, Amadand, Navagaon, Jhabar, Andhiyaar Kho)

1. 16'h November, 2002 Village: Semraha, Andhiyaar Kho Panchayat, Gorella Block.

People: 30-40 men and women of the Baiga community, dominant in the pada, and some men from the Rathaur community.

Govt. Functionaries: Accountant from Janpad Panchayat, Gorella.

Facilitators: Sanket Development Group

No major issues of concern were raised the people felt that they needed time to understand the programme and give their feedback at the consultation meeting scheduled on 18'h November 2002. An introduction to the programme was given to the people and the facilitators informed them that in case they had any issues of concern they must raise them in the meeting.

Semaraha being a pada far from the main centre of the Gram Panchayat, Andhyar Kho, there was some cynicism about whether the scheme would percolate down to all these scattered hamlets, which are independent by virtue of the different communities living there.

85 Panchayat, 2. 17 th November, 2002, Village:Meeting at para of Jumdi Khurd, Lata Pendra.

People: 10 men of the Oraon tribe, which is the dominant group in the said pada.

Govt. Functionaries: Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group

Major issues of concern raised and addressed at the meeting:

Different livelihood options (subprojects), which can be undertaken under the DRPP, were discussed in terms of their possibility and viability:

V Improvement in their current agricultural activities - the group felt that help from DRPP could be put effectively to improve their current agricultural activities. These could be related to providing infrastructure such as irrigation facilities (canals, wells, pumpsets), and in training the community to enhance present agriculture skills since the same has been imbibed and not inherited. Upon further inquiry, the members pointed out that since they do not use 'modem' agriculture practices such as use of fertilisers, this pointed to the need for agriculture extension in this field. / Animal husbandry-most of the Oraons are not experienced in animal husbandry; it was felt by them that it would be easier to rear small animals like goats, pigs, and poultry which are easier and less expensive to rear in comparison to stall fed cattle. According to the group, the forest departments had already indicated that they could provide land for pastureland development. / Oraons, traditionally forest dwellers, are very knowledgeable about local forest produce and its usage, and use of forest products is an integral part of their daily lives. In the discussion it was brought out that their knowledge of existence, ability to locate, identify and collect forest produce and to make it into usable products could be supported by sensitive marketing support, and this could lead to sustaining their livelihoods. The Oraons felt that this support is required both for increasing their own procurement capacities and to market within the existing local markets. V Many of the Oraons today are labourers working in the neighbouring stone cutting quarries, which provide gitti (gravel) for road construction. The trading of this gitti is done at different levels, before it reaches the final contractor of the road construction. There was a discussion in the group on whether a CIG could get involved in this process of trading, though most were unclear on the marketing channels and abilities needed for the same. / It is clear from these discussions that the local economy is still largely a fairly closed economy and its interface with externalities are more in terms of trade and relations of exchange. The Oraons will require substantial managerial and skill support in organised livelihoods systems and marketing and financial support to increase their capacities to earn better from their traditional livelihood sources.

86 Forming CIGs

v There was some discussion on the difficulty of coming together and forming a group due to differences in economic conditions. This could give rise to conflicts, based on resources contributed by CIG members. An example given by one member of the community was that on building a common well there could be different individual needs for water on land holdings, which may create conflict between members. The facilitators informed them that efforts should be made to take up sub projects which would not create conflicts but would instead help to work together in a group.

3. 17th November, 2002 Village: Meeting at pada of Jumdi Khurd, Lata Panchayat, Pendra.

People: 8-10 men and women of the Dhanuar tribe, who reside in the pada.

Govt. Functionaries:Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group Note: The residents of this hhmlet have received some information on this programme. However they are still in the process of understanding this project and hence have not been able to see themselves as a part of this project. Therefore this meeting was used to understand the economic situation and livelihood options available to this community in the light of the project.

Observations based on the discussions held

This is a hamlet of the main village Jumdi Khurd. The total area of the hamlet is about 15 acres including farmlands. It consists of a community of 1 I families of the Dhanuhaar tribe. This tribe was originally a hunting tribe, deriving its name from the 'dhanush' or bow (made of bamboo) and hence the community's inherent association with Bamboo.

Today the members of the community have shifted to making of bamboo articles, agricultural labour and procurement and sale of forest produce.

Most of the bamboo work however is restricted in its variety. The articles are made for sale in the 'haat' or market and in the nearby villages where there is a demand for the same. When the articles are sold in the village 'haat', the maker often gets a very low price for them. While both men and women are engaged in the making of the articles, it is the men who do the marketing and trading. The bamboo used is procured by the maker or supplied by the buyer.

Labour is another source of livelihood for both men and women. This could be in the form of agricultural labour, cow herding.

87 They are also engaged in collecting forest produce for self-consumption and for sale. This includes a fruit called 'Bhakranda', a weed called 'Charauta' and leaves of the Sarai tree. This fetches them a nominal amount. They also have very small 'badis', on which they grow mostly 'jowar' for self-consumption.

Most of these transactions for labour and goods are made in kind, the return for which is usually husked rice or poor quality grain.

Based on the above observation some important issues of concern while implementing the programme in this area would be:

/ The community has developed a specific skill related to bamboo work over the years. Enhancing this skill, formalising procurement systems for raw material and encouraging further expansion and introduction of variety in this activity will help the community in developing this activity into a viable livelihood option. / The traditional market system of the community is a barter system, and usually much of the exchange takes place with neighbouring communities who the Dhanuars are familiar with. As interactions with a larger market economy increase the channels, expertise awareness and communication systems need to be developed in the community. V Most importantly there are very few available resources with this community to start an enterprise. Existing resources thus need to be understood and tapped to their fullest potential in order to ensure sustained livelihood options.

4. 17th November, 2002, Village: Meeting at Dongrapara, Village Amadand, Amadand Panchayat, Pendra.

People: Sarpanch of Amadand and a few villagers belonging to the Kanwar from Dongrapada

Govt. Functionaries: Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group

There could not be a full meeting in Amadand since many of the villagers were out on work and due to a lack of time the team had to go further on to the neighbouring villages. However discussions with the Sarpanch and villagers revealed that the CIGs had been formed in the village for the last six months and the people were still waiting for the initiation of the programme. There is great enthusiasm to start with the same soon.

5. 1 7 th November, 2002, Village:Meeting at Village Navagaon, Navagaon Panchayat, Pendra.

People: Embroidery workers of Navagaon belonging to the Muslim community.

88 Govt. Functionaries:Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group

The group present consisted of embroidery workers who have recently become trainers, trained women in different villages to embroider on intricate designs on silk. This has been initiated and supported by local leaders and the govemment to train women to work at home. The effort however is at its initial phase, the market for the same still needs to be explored and there is a great degree of talent, skill and quality required for the production of this embroidered cloth. It definitely came across as an option for those talented in embroidery, but the certainty of market and sustenance of the same as a livelihood option seems to be questionable till one sees the project move further.

Though there was less knowledge on the programme itself, experiences showed that the community present at the meeting seemed enterprising and open to venturing out to newer options related to livelihoods.

6. 17 th November, 2002, Village: Meeting at Harijanpara of Village Jhabar, Lata Panchayat, Pendra.

No. of Villages covered 2

People: 40-50 men and women of the Chamar community, who reside in the pada.

Govt. Functionaries: Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group

Major issues raised and addressed in the meeting with the men's group in Harijanpara

v' Most of them own little land (less than one acre) and are not able to meet subsistence needs through farming on the lands - it is not clear whether they own the land or are sharecroppers. / An effort was made to look at occupations which are not land based. Currently the community is involved in activities like goat rearing, pisciculture, carpentry and shoe making. The community discussed the viability of expanding these activities in terms of skills, market facilities and existing resources. v The members also shared the concern that there might be a danger if all the CIGs take up the same activity. For example if all of them take up carpentry then where would they market the goods? Hence a variety of activities need to be initiated. / Some new options for subprojects, which the CIGs can take up, were suggested. This included trading in buffalo bulls, activities related to transportation and minor irrigation work.

89 Major issues raised and addressed in the meeting with the women's group in Harijanpara

v The women in Harijanpara would prefer to work in a large group of over five members The main activity pursued by women at present besides agricultural labour was trading vegetables between markets and households, of which the profits made are minimal. The women discussed a scope of expanding this activity to a larger trading activity, exploring better markets where the same could be sold for higher prices. They also discussed that they could diversify and trade other goods like grain, goats, vessels, etc.

Observation

V Processing of leather and using it for shoe making is the traditional skill of the community. While the older generation is aware of the various processes and techniques involved, they emphasised that the younger generation has not learnt this skill. This may be attributed to the social stigma attached to this activity and hence the community historically. The community has picked up new skills like goat rearing, carpentry, etc and is willing to enterprise on the same.

7. 1i7th November, 2002, Village:Meeting at Village Jhabar, Lata Panchayat, Pendra.

People: 20-25 men of the Gond tribe and Chamar community, who reside in the village.

Govt. Functionaries: Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Dr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development Group

Major issues of concern raised and addressed at the meeting:

/ Can the DRPP funds be used as a common fund resource from which individuals can draw money to start their own enterprises? V Another major concern was that the groups have been formed and been involved in saving activities for the last six months, and have been waiting for the funds to initiate their sub projects. V The money that is given for village development by the CIG should not be exhausted in one time. What are the ways in which this could be kept alive and floating? V Will the number of CIGs remain the same as they are today? There are many people who have lost faith and disbanded from the CIGs. It was clarified that once a few CIGs start their work and are successful others would and could also form more CIGs later. There is scope for linking with financial institutions, which will help in strengthening and expansion of the CIG and its activities. V Has it been successful in other villages?

90 / The success of this programme requires the cooperation and the assistance of the people in the village. Hence, one will need to ensure effective participation and involvement of the Gram Sabha.

Most of the issues were related to the implementation and feasibility of the programme itself. Dr.Vishwakarma and Dr. Pradeep Bose shared their experiences related to the project in MP and rendered information on the project relevant to the issues raised.

8. 18'h November, 2002, Village: Semraha pada, Andhiyaar kho , Gram Panchayat Andhiyaar kho, Gorella block

Representation:

People: Semraha is dominantly a Baiga pada, hence mostly members of the Baiga tribe were present. There were some individuals from the Rathaur community who comprise a few households in the pada. Both men and women were present, with the women comprising about 30% of the total group present.

There were also some people from the main village of Andhiyaar Kho present. The Sarpanch of the Panchayat, a member of the Gond tribe of Andhiyaar Kho was also present.

Government Functionaries: Mr. Anil Rai, CEO, Zilla Panchayat, Bilaspur Mr. Paraste, CEO, Janpad Panchayat, Gorella Dr. Mishra, CEO, Janpad Panchayat, Pendra Mr. Pradhan, ADO, Gorella Mr. Khokhar, ADO, Marwahi Mr. Thakur Singh, Janpad Panchayat, Pendra Mr. Dau, Janpad Panchayat, Pendra Sachiv, Andhiyaar Kho

Representatives of the Dept. of Panchayat and Rural Department - Ranjan and Rajat

Representative from the World Bank: Mr. Warren Waters

Representatives from Sanket Development Group: Dr. P. Bose. Maheen Mirza, Sayantoni Datta, Neha Pradhan

The details of the scheme were explained by the government functionaries and then issues raised by the people were addressed.

Major issues of concem raised and addressed at the meeting:

91 / The absence of a lump sum of money, which is, required as initial contribution of each member of the CIG. This issue was raised by a woman belonging to the Rathaur community first, and then later by a man from the Rathaur community. The Government response to the same was that since the project is yet to start, there is time to save and build the lump sum required for the initial contribution to the CIG. If a group of very poor men or women do not have this money even then, the village can decide to loan them the money, which they can pay back within a year or so, when the sub-project initiated by them brings its returns. The people of the village have very small land holdings (The largest holding is that of 8-9 acres) if at all. There are many landless labourers also. What can be done by them and where? The Baiga men and women raised the issue. V The Government response to the same was that an enterprise, which can be done on a small piece of land and once they, start getting their returns, they can take larger pieces of land on lease. It is difficult to meet subsistence needs and family members are constantly engaged in labour in other farms or in government programmes. They get paid in grain for the same. V This issue was raised by members of the Baiga community. V There is no electricity and this worsens the water problem in the village. v This issue was raised by many members of the group present. The government response to the same was that to make provisions for electricity is something which will take a long time. Hence, the people can use alternatives like diesel pumps to draw water for irrigation. They can come together as CIGs in the village, pool their resources together and take up minor irrigation projects like lift irrigation to address the water problem in the village. Is there a minimum number of CIGs that need to be formed in the selected village before an interested and ready group can get the money to initiate the sub-project? This question was raised by the Sarpanch. The response from the government functionary was that there are no such criteria. A group of interested 5 people have to come together, make the initial contribution and prepare a proposal for the sub-project 'they want to initiate. The money will then be sanctioned to them. After a period of time, someone from the block or district level will come and see the sub-project being managed and then more money will be sanctioned. The Gram Sabha would have to be informed of the sub-project and its management, all through the process also. The process of this scheme has to implemented and managed by the people themselves. The final say will be that of the Gram Sabha and the CIG will have to be working with the Panchayat. The returns will also have to be managed so that they raise the income of the CIG members as well as feed back into the sub- project initiated. This point was made by the government functionary. Some people responded by saying that they will be able to manage the sub- project. Livelihood options like rearing goats or pigs, minor irrigation programmes like digging of wells, procurement of pumps, and construction of tanks (which can be used for pisciculture also) were demanded and suggested by the people. These demands and suggestions were made by the people.

92 v The government response to the same was that such projects could be taken up by the members of the CIGs by pooling in their resources and using the project money. Some details of these livelihoods were discussed. -' Proforma currently being used for collection of baseline data (see Appendix 4c) was explained to Mr.Warren. All the data collected by the PFTs during this exercise will be analysed at district and state level. This data will help in framing, monitoring and learning indicators.

93 Appendix 4c Baseline Data-Household Survey

1. Name of the village : Mohalla/ Ward no._ 2. House number :_ Family no._ 3. House (1) Pucca (2) Kutcha (3) Kutcha/ Pucca 4. Name of the owner Shrih Name of the father/ Husband Shrih 5. Caste : Category 6. Details of the family

Sr. Name Age Relation Occupation Qualification no. with the owner

7. Total number of members: Males Females_ Children : Male Female_ 8. Occupation : (1) Agriculture (2) Labourer (3) Service (4) Business (5) Other 9. Details of agricultural land: (1) Current (2) Fallow (3) Total_ (a) Irrigated (b) Unirrigatedi 10. Sources of irrigation: Source Own Shared Well Tube well River/ nullah Others

11. Agricultural implements: (1) Tractor (2) Thresher (3) Deisel pump (4) Generator (5) Electric motor (6) Charas

(7) Others

94 12. Major Crops Kharif Rabi Others

13. Animal Husbandry Buffaloes Cows_ Goats Sheep_ _ Hens Others_

14. Migration status: (a) Number_ (b) Place (c) Duration _

15. Remarks

95