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The Political and Administative Context of Environmental Degradation in South-India

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THE POLITICAL AND ADMINISTATIVE CONTEXT OF ENVIRONMENTAL DEGRADATION IN SOUTH-INDIA HOW CHANGES IN POLITICS AND PUBLIC ADMINISTRATION DETERMINE NATURAL RESOURCE MANAGEMENT BY INHABITANTS OF TWO VILLAGES IN A DROUGHT-PRONE AREA 1989 Centre for Environmental Studies Willy Douma Leiden, The Netherlands Wim Kloezen Paul Wolvekamp THE POLITICAL AND ADMINISTATIVE CONTEXT OF ENVIRONMENTAL DEGRADATION IN SOUTH-INDIA HOW CHANGES IN POLITICS AND PUBLIC ADMINISTRATION DETERMINE NATURAL RESOURCE MANAGEMENT BY INHABITANTS OF TWO VILLAGES IN A DROUGHT-PRONE AREA 1989 Centre for Environmental Studies Willy Douma Leiden, The Netherlands Wim Kloezen Paul Wolvekamp PREFACE This report is the result of a six-months fieldstudy in a Semi-Arid regi­ on of South India during the period Februari - September 1987• The study was conducted by three students from different disciplines and univer­ sities. Ir. C.A. Drijver and Drs. G. Persoon of the Center of Environ­ mental Studies, University of Leiden, the Netherlands, guided us during the preparation of the study and the writing of this report. The initiative of the study was all ours. During a preliminary visit to India (September- October 1986) we succeeded in contacting eligible Indian supervisors. Dr. S.T. Somashekare Reddy (Indian Institute of Management, Bangalore) and Prof. J. Bandyopadhyay (Research Foundation for National Research Policy Dehra Dun) were willing to support us during our stay in India. With his great enthousiasm and his inexhaustible know­ ledge about village life, Mr. Somashekare Reddy introduced us into the villages and helped us to fight our ignorance. But how to do fieldwork, without the full cooperation of the villagers? It is a great feeling when people welcome you into their villages, and give you friendly warmth and shelter, even despite our never ending ques­ tions. Without our translaters cum co-students it certainly was impossi­ ble to close the gap between Holland and Gatlagollahalli and Kanithalli. Miss Nirmula Puttana, Mr. Kullappa and Mr. Jayaram Reddy showed enough endurance to cope with our passion to know everything. We certainly learned from our experiences with the villagers, and we hope that the children, women and men of Kanithalli and Gatlagollahalli feel the same. Special thanks and warmth go to Mr. B.C. Venugopal Rao and his family who have showed an unbelievable hospitality for us Eind our friends. Also we want to express our gratitude to the Evert Potjer Fund and to those other funds which donations enabled us to execute the research. Of course many other people supported our work and thought or struggled with us to fight. Few we can mention here, among them: Luuk Zonneveld, Hanne de Bruin, Peter Heikoop, Jan Brouwer, Mr. V. Parthasarathy, Mr. Siva Prasad, Mr. Mohammed Hussain, Mr. Pandurang Hegde and other members of the Appiko movement, Mr. Charles Fernandez, Mr. Rajni Kothari, members of the several Departments we visited, the Dryland Development Board, ICSSR, Data Center for Natural Resources (Mr. Johnson David and co­ workers) and ISEC. We are sure that also those people whose names are not written on this sheet, will know that we are very grateful to them. Willy Douma (Faculty of Biology, University of Utrecht). Wim Kloezen (Department of Irrigation and Civil Engineering, Agricultural University Wageningen). Paul S. Wolvekamp (Department of Political Sciences, University of Leiden. CONTENTS PREFACE ABBREVIATIONS SUMMARY 1. INTRODUCTION 1 2. RESEARCH QUESTIONS AND DEFINITIONS 3 3. THEORETICAL JUSTIFICATION 5 3.1 Introduction 5 3.2 Theoretical warnings 5 3.3 Man-nature-system 6 3.4 Environmental problems 7 3.5 Causes to environmental problems 9 3.6 The role of politics and public administration 10 4. METHODS AND TECHNIQUES 12 5. THE POLITICAL-ADMINISTRATIVE SETTING OF LOCAL NATURAL RESOURCE MANAGEMENT 15 5.1 Introduction 15 5-2 Relations of authority and cooperation in the village 15 5.3 Mobilisation for natural resource management 16 5.4 The external relations of the village with politics and administration 17 5.5 Changes in the village administration 17 5.6 The wider political administrative setting 19 5.6.1 "Four Columns" 19 5.6.2 The local and regional government 19 5.6.3 The executive administration 22 5.6.4 Local self-government 23 5.6.5 The political parties 24 5.7 The government and access to basic needs 25 5.8 The politics of distribution 26 5.8.1 The political culture in Karnataka 26 5.8.2 The role of caste-politics 26 5.8.3 The impact on natural resource management 27 5.9 Environmental planning in Karnataka 31 5.9.1 Planning in general 31 5.9.2 Lack of spatial planning and environmental impact assessment procedures 32 6. AN INTRODUCTION TO THE VILLAGES 34 6.1 An introduction to Gatlagollahalli-village 34 6.1.1 Village lay-out 35 6.1.2 The population 36 6.1.3 Governmental institutions in Gatlagollahalli 38 6.2 The land use system of Gatlagollahalli 38 6.2.1 Introduction 38 6.2.2 Gatlagollahalli land use 39 6.3 An introduction into Kanithalli-village 42 6.3.I Village lay-out 45 6.3*2 The population 43 6.3-3 Sources of income 44 6.3.4 Governmental institutions in Kanithalli 44 6.4 Land use System 45 6.4.1 Kanithalli land use 45 7. DEFORESTATION 48 7.1 Introduction 48 7.2 Gatlagollahalli's tree wealth 51 7.2.1 Trees and shrubs in the non-agricultural area 51 7.2.2 Trees in the agricultural area 57 7.2.3 Tree management practices 60 7.3 Kanithalli's tree-wealth 61 7.3*1 Trees in non-agricultural areas 62 7-3-2 Trees in agricultural areas 63 7.4 Fuelwood scarcity 65 7.4.1 Fuelwood demand 65 7-4.2 Fuelwood sources 65 7.4.3 Fuelwood problem 68 7.5 The fodder problem 76 7.5*1 Fodder demand 76 7.5*2 Fodder sources 77 7.5*3 Causes of fodder shortage 7-5*4 Reduction of livestock 7*5*5 Consequences of changes in fodder supply 84 7.5*6 Social consequences of fodder shortage 86 7*6 Timber shortage 90 7.6.1 Timber demand 90 7.6.2 Timber supply 91 7.6.3 Timber shortage 91 7.6.4 Social consequences of the timber shortage 93 7*7 Green manure shortage 95 7*7*1 Causes and consequences of green manure shortage 95 7.7*2 Social consequences of a green manure shortage 96 7*8 Minor tree products 97 7*8.1 Minor tree products in Gatlagollahalli and Kanithalli 97 7.8.2 Bamboo: a minor forest product 97 7.9 Deterioration of biomass resources 99 7*9*1 Introduction 99 7*9*2 Biomass flow of Gatlagollahalli and Kanithalli 99 7*9*3 Attitude towards trees 106 7.10 The administrative context of forestry problems 107 7.10.1 Introduction 107 7.10.2 Land tenure and treegrowing 107 7.10.3 Common property land versus open access land 109 7.10.4 Legislation and tree growing 110 7.10.5 Rights and obligations to trees within the tenurial framework 111 7.10.6 The official answer: Social Forestry 119 7.10.7 The micro plan 124 8. DROUGHT PROBLEM 126 8.1 Introduction 126 8.1.1 A climatological definition of drought 126 8.1.2 Decrease of rainfall 128 8.2 Over- and underexploitation of water resources 129 8.2.1 Introduction 129 8.2.2 Underexploitation of surfacewater 129 8.2.3 Overexploitation of groundwater 131 8.2.4 Decrease of waterstorage in the Drylands 132 8.3 The Impact of drought on natural resource exploitation 134 8.3*1 Introduction 134 8.3.2 Groundwater exploitation in Gatlagollahalli 134 8.3.3 Groundwater exploitation in Kanithalli 137 8.3-4 Drought and wetland cultivation in Gatlagollahalli 139 8.3.5 Drought and wetland cultivation in Kanithalli l4l 8.3-6 The impact of drought on dryland cultivation 143 8.4 The social dimension of drought in Gatlagollahalli 146 8.4.1 The management of communal tankwater 146 8.4.2 Waterscarcity and access to water 147 8.4.3 Social conflicts around waterscarcity in Gatlagollahalli 150 8.4.4 Conflicts on groundwater exploitation 151 8.4.5 Conflicts on system maintenance, leading to underexploitation 155 8.4.6 The illegal appropriation of communal land- and waterresources 158 8.5 The socio-economic dimension of drought in Kanithalli 160 8.5.1 Collapse of communal tankwatermanagement 160 8.5.2 Waterscarcity and access to water l6l 8.5-3 Drought and irreversible marginalisation 162 8.6 Drought relief, politics and public administration 165 8.6.1 Local drought relief activities 165 8.6.2 Droughtrelief and executive administration 166 8.6.3 Criticism on waterconservation policies 168 8.6.4 Legislation and droughtrelief 171 8.6.5 Participation and droughtrelief: the role of the Mandal Panchayat 175 9. INTERPRETATION 185 9.1 Environmental degradation 185 9-2 Social consequences 188 9-3 Causes of environmental problems 191 9.4 Alternatives and actual strategies 194 9 - 5 Shortcomings 195 9.6 Limits to environmental strategies 198 10. CONCLUSIONS 185 11. RECOMMENDATIONS 192 GLOSSARY BIBLIOGRAPHY ANNEX 1 Foundation of Gatlagollahalli 2 Trees in the surroundings of Gatlagollahalli 3 Example of fodder needs of a buffalo 4 Eucalyptus 5 Organisationscheme of the Department of Social Forestry ABBREVIATIONS AEE Assistent Executive Engineer BDO Block Develpment Officer DLDB Dryland Development Board DPA Drought Prone Area FD Forest Department LUS Land Use System MLA Member of Legislative Assembly (State Parliament) MP Member of Parliament (Union Parliament) O&M Operation and Maintenance PWD Public Works Department RD Revenue Department RFO Range Forest Officer Rs.
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