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IPP28Volume 2

Section 3Tribal Development Strategy

3.1 Introduction

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

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

It is well established that the tribal communities as anywhere else in the country, are oneof the most vulnerable and marginalised group. They face social diversity, oppression andeconomic hardships in various forms. They have to contend with unequal and insecureaccess to productive resources and share poor participation in governance. Tribal areasand communities largely remain underserved through public systems - both on account ofsupply (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. Pooreducational achievements, vulnerable health status and insecure livelihood base have keptthese groups to the margins of development in Chhattisgarh. The number and status oftribals, thus warrant specific attention to aspects of their participation and intendedbenefits from DRPP.

Through this tribal development strategy the government makes an attempt to recognisethe fact that benefits from programmes and schemes intended for the tribals do not reachthem automatically and that deliberate and strategic measures and protective regimeshave to combine with relevant programmes in order to ensure that benefits actually accrueto vulnerable sections such as tribals. Accordingly, this document sets out an agenda ofaction for DRPP and identifies measures and provisions intended to protect and enhancethe participation of and benefit to the tribal communities in the selected DRPP districts.This paper identifies broad principles and directions for institutional and programmaticintervention with the tribals in DRPP.

This strategy document is structured as follows:

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~~~E COPY ~~~~46

3. Government and Non Government Organisations working for Tribal Development inChhattisgarh.

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 statusin 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 theexception of some isolated tribes, which continue to be in the food gathering stage, settledcultivation is the dominant mode of occupation for most of them. However, forestscontinue to be significant source of livelihood. This is a result of the historical pattern ofsettlement whereby the tribal communities reside in or near forested areas. The areas oftribal concentration in Chhattisgarh can be classified as under:

North Eastern Zone: Comprises of Surguja, Raigarh, Bilaspur and areas of otheradjoining 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 anumber 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. Thesesix 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 DevelopmentAuthority, Bilaspur)

4. Pahadi Korba Vikas Abhikaran, Ambikapur (Pahari Korba DevelopmentAuthority, 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 provisionsfor drinking water sources, civil constructions, health facilities, schemes such as purchaseof 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 alarge area with very high tribal concentration. This area is populated by various tribes likeGond, Bhatra, Halba, Maria and Pardhi. Numerically, Gond is the largest tribe ofChhattisgarh.

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

Table 1: Details of Scheduled Tribe Population in DRPP Districts of Chhattisgarh(1991)

S District Total STs % Of Total Major Tribes Other TribesNo. Population PopulationI Bilaspur 1694883 347216 20 Gond, Kawar Dhanwar, Bhinjivar,2 Korba 825891 356222 43 Sawar, Bhaina, Oraon,3 Janjgir-Champa 1110200 135641 12 Majhwar4 Surguja 1581872 897217 57 Gond, Kawar, Oraon Bharia, Agaria, Nagasia,5 Koriya 500758 220360 44 Khairwar, Dhanwvar.

Korwa6 Raigarh 1065939 392385 37 Gond, Oraon, Bharia, Bhinjwvar,7 Jashpur 656352 429092 65 Kawar, Sawar Dhanwar, Kharia.

Korwa, Majhi, Nagasia8 Raipur 2529166 331554 13 Gond. Kawar Bhinjwvar, Saur, Sawar,9 Mahasamund 791197 222298 28 Flalba, Bhunjia, Kamar10 Dhamtari 587679 160175 27II Durg 2397134 298059 12 Gond, FHalba Kawar12 Ra jnandgaon 1089047 293071 27 Gond, Kawar, Halba Baiga13 Kawardha 513496 103946 2014 Bastar 1116896 742799 67 Gond, Bhatra, Fllalba Pardhi15 Kanker 532151 296584 5616 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 havederived benefits of settled agriculture under favourable conditions and have also sought toassert a higher social identity. However, for most tribals, settlements along the hillytracts, forests or marginalised lands; social status and economic endowment is low andprecarious. The large number of tribals present in the state pose a challenge for alldevelopment and poverty reduction initiatives and programmes have to b sensitive to theirsocial, cultural and livelihood context.

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

The following are the main development indicators that highlight the problems andchallenges 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 thetribal communities of the state have lagged behind, both in terms of access as well asscholastic achievements. Although the state has invested considerably in infrastructuredevelopment for universalising education, large proportions of tribals, particularly girls,still remain outside the scope and reach of formal schooling. The 1991 census revealedthat the overall literacy rate among the tribals was 26.7 percent, male literacy was 39.7percent and female literacy rate a mere 13.9 percent. We may assume that these rateswould have increased considerably over the last ten years, a period in which the literacyrate of Chhattisgarh state progressed from 42.9 percent in 1991 to 65.2 percent in 2001.

There are of course spatial variations. Lack of social motivation, economic stress, limitedperceived relevance of schooling, poor teacher motivation and inadequate resources havecombined tojeopardise the tribals' access to education. These act even more aggressivelyon the girl child. Hence, the gender gap in education remains persistent. A district wisepresentation 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 rateamongst STs (All)

I Koriya 19.52 Surguja3 Bilaspur 29.94 Korba5 Janjgir-Champa6 Jashpur 32.87 Raigarh8 Kawardha 35.69 Rajnandgaon10 Durg 50.611 Raipur 35.712 Mahasamund13 Dhamtari14 Kanker 15.515 Bastar16 DantewadaSource: Sanket, Chhattisgarh - A State is Born, Bhopal.

Chhattisgarh has been a witness to a number of innovative government programs likeEducation Guarantee Scheme (EGS), Alternative Schooling, District Primary EducationProject (DPEP) and initiatives by voluntary organisations in the field of education. Theinitiatives have sought to fill the supply gap by offering more and better-equippedfacilities and also to improve effectiveness of public education system by focusing uponpedagogy and aspects of teacher motivation. EGS ensures provision of a school withinone kilometre radius of a settlement from where the demand for the same has come andwhere there are at least 40 children (25 for tribal areas) who do not have access to aprimary school. DPEP is a World Bank sponsored project, which works towardsuniversalising primary education through multiple interventions at programmatic andinstitutional levels and which covers all aspects of education. Alternative Schooling wasintroduced as an intervention under DPEP for education of children who are not able tostudy 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, withagriculture, animal husbandry, forestry and allied activities the main sectors in whichtribals earn their living. These are carried on primarily for their own subsistence andoften under endemically adverse ecological and economic factors. The status of

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

Raipur (Raipur Rajnandgaon Bastar (Bastar BilaspurMahasamnud (Rajnandgaon Kanker and(Bilaspur, KorbaSurguja (Surguja Raigarh (Raigarhand 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. FrotalBelow 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 holdingsis smaller, when compared to those of the general population. The proportion of triballand holdings is also lower than their proportion in the total population. Further, theirshare of cultivated land is smaller than their share in population in nearly all the districts.

Table 3: Landholding Distribution in different size classes in ChhattisgarhNumber 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

Access of tribal population to land, remains highly unstable and insecure. Land alienationand insecurity of tenure has been a regular cause of concern related to tribal landownership and this makes their stakes even more uncertain, amounting to virtuallandlessness. Wrongfiul dispossession, unfair tenancy arrangements and bondage arecommon in these areas. In these situations, most of the tribal families exist on the marginof 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 thecompetent 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 andextortion.

* While the State has adopted a progressive policy of distributing governmentrevenue land to landless, incomplete land records and their unavailabilitysubvert 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 stateand their distribution amongst the landless. However these provisions are notenforced.

* Questionable methods are employed to auction land of weaker sections by thebanks.

* 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 asprotected areas.

* The survey of encroachments prior to 1980 is not impartial. Encroachments onforestlands and their subsequent regularisation used to be permanent feature inforest areas. The Forest Conservation Act passed in 1980 puts a stop to thispractice. It imposed very stringent conditions for diversion of forestland fornon-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 of1980 has hampered their conversion into revenue villages.

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

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

3Revenue department, 20024Land use classification in Madhya Pradesh, 1992-1993, table EL-3, page 242, MPI-IDR 1998

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

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

3.2.4 Forestry

Forest and forest produce occupy an important place in the tribal economy andemployment. In the state, the richest forest reserves are found in the tribal homelands andthe 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 importantsource of revenue.

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

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

The Chhattisgarh Government has accepted the responsibility of meeting the forestproduce requirements of the people living around the forest area, through 'Nistaar'. Under

sForest Dcpartment, Department Employment Report, 2001-20026 Forest Department, 2001-2002

Nistaar, the Forest Department supplies fuel and fodder to the villagers at,subsidisedrates. The latest forest policy of the Government restricts this facility to villages locatedwithin five kilometres of the forest fringes. However, local residents do not have anyclain on commercial revenue from the forest.

Tribals have a close linkage with the Forest Department as they reside in and aroundforest areas that are managed by the Department. The relationship has been problematicto say the least. At the crux of myriad problems, lies the question of ownership - Whoowns the forest land? - the Forest Department or the tribals? The uneasy co-existence hasat 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 tribalcommunities a stake in the management of the forestland, whereby the Gram Sabha holdsthe responsibility of coordinating the implementation of the project and also plays a rolein resolving issues. A total of 6412 JFM committees covering more than 33924 sq. km. of

7forest have already been formed in the state7.Under the DRPP project, the CIGs can take up the initiative of forming Forest ProtectionCommittees (FPCs) provided they have not been established till now in their respectivevillages. A FPC is a higher order organisation compared to CIGs and might comprise of anumber of CIGs operational in the village. Initiatives such as strengthening of an existingFPC 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 membersof DRPP field teams in the subject. The project will have to closely liaison with theForest 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 andforestry related activities, their low asset base in terms of land and livestock and fewoptions for self-employment, usually makes wage labour an important component oftribal's economy in the state. The overwhelming source of wage labour for tribals isagriculture operations. In addition to this, forestry, mining and quarrying, andconstruction work are the other important employment sectors for them.

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

The quest for wage labour has guided the tribal poor to urban centres and regions of highagriculture 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 labouris casual and completely determined by vagaries of market forces and none of thenumerous labour laws are applied to this mode of employment. Labourers have to depend

7Forest Department

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

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

Finally, children enter the workforce early in tribal society. Low average years ofschooling, high dropouts and establishment of nuclear family after marriages means thatyoung tribal adults have to be independent very soon. Children work as constructionlabour 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 ofChhattisgarh are among the poorest and most vulnerable group in the state. The recentpoverty surveys8 show that 5,89,363 tribal families live below poverty line. Theycomprise 41 percent of all families below poverty line in the state. This is much higherthan 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 tribalof rural Total BPL families living belowfamilies families the poverty line

1 Raipur 454122 36 18.92 Mahasamund 167780 50 32.73 Dhamtari 112472 32 44.44 Durg 327523 33 17.25 Rajnandgaon 192866 41 32.96 Kawardha 94062 51 29.87 Bilaspur 334258 42 28.18 Korba 132352 44 58.69 Janjgir-Champa 230391 41 17.510 Raigarh 243332 45 3911 Jashpur 127949 40 54.012 Sarguja 335165 51 60.913 Koriya 86290 40 58.414 Bastar 219786 58 70.615 Dantewada 91081 79 78.716 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

different areas though there does exist some overlap also9. There are also someconsiderable differences between them, which will require different approach by PFTstowards these groups even in the same area. Hence, it is important that the members ofthe PFTs have an understanding of the characteristics, needs and approaches of thesetribes. While many of them own some land, they also depend on wage labour and oftenface extreme exploitation and forced bondage. Hence, the PFTs must be prepared for aspectrum 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 predominantlytribal areas in Section I of Schedule 244 that are referred to as Scheduled Areas. TheSchedule gives state-wise list of communities to be designated as Scheduled Tribes.Following widespread cases of atrocities against members of Scheduled Castes andTribes, the centre has passed Prevention of Atrocities (SC and ST) Act, which stipulatesstringent punishment to those who commit atrocities against any tribal.

The strict hierarchical caste divisions in the Indian society place the tribals at the verybottom 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 publicfacilities to members of SC/ ST, derogatory forms of address, forced show ofsubservience in the presence of upper caste people, and segregatory practices. Violence isoften resorted to for enforcing the norms. While legislation existed earlier also againstthese practices, the new powerful act provides for strong punitive action in these cases. Itmakes 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 theinterests of the tribals in Chhattisgarh are as follows:

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

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

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

9 Refer Table I

all related issues and make recommendations on the salient features of the law forextending the provisions of the 73rd Amendment to the Scheduled Areas. The committeesubmitted its report in January 1995, and after thorough examination of therecommendations 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 ofthe Panchayats (Extension to the Scheduled Areas) Act, 1996 (Act no. 40 of 1996). Theobjective of this Act are as following:-

> To extend the Provisions of Part IX of the Constitution relating to the Panchayats tothe 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 theConstitution. As a sequel, all existing laws relating to Panchayats in the fifth schedulearea had to be amended as per the provision of this act with one year time period. Theother Acts that have been amended are Chhattisgarh Land Revenue Code andChhattisgarh Excise Act. Amendments in Chhattisgarh Money Lending Act andChhattisgarh Village Court Act are under process.

Designation of Tribal Areas as TSP, MADA and Clusters: An important policy thathas governed tribal development administration is the designation of Tribal Sub Planareas in the fifth five-year plan (1974-79). TSP areas include Scheduled areas and thosetehsils in which tribal population exceeds 50 percent of the total. In order to covervillages that could not be included in TSP areas as per their definition, the concept ofMADA was introduced in the Sixth plan (1980-85). Under this, those cluster of villageshave been identified as MADA (Modified Area Development Approach) pockets, whichhave an aggregate population of 10,000 and where 50 percent of the population belongsto tribal communities. Finally, steps were taken in Seventh five-year plan (1985-90) tocover isolated and scattered pockets of STs in the state through the identification of morepockets 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 thesehas a specific project and fund allocation handled and coordinated by the department ofTribal Development and SC welfare. DRPP and ITDP areas will overlap, but ITDP fundswill 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.

3.2.8 Government Structures, Services and NGOs for Tribal Development inChihattisgarh

Government Agencies

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

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

' To implement programs for the educational and economic development among tribalsof the state.

> To act as a channelising agency of funds to various line departments and agencies fortribal development interventions.

> To coordinate and monitor funds application by various line departments in tribalareas.

The department is headed by the Minister of Tribal Welfare, who is assisted by aSecretary. The Commissioner of Tribal Welfare is the State level executive in-charge ofthe 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 ClusteCommissioner (12) Coordinator (4) Pocket (9)

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-TSPareas (4 districts), District Organisers are in charge of district level departmentalactivities. 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

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 fromtendiu patta collection, a large-scale seasonal forestry activity in the state. The Federationis poised for an expansion in its trade in other forest-based commodities. They arespatially well dispersed and have very large membership especially in villages borderingthe forest area. Most members are from poorer section. The Primary Societies usuallyhave substantial funds of their own and will probably be a major source of funds for thebeneficiaries' contribution in this project.

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

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

> NGOs: This category comprises of mainstream development and service deliveryNGOs that access state and private funds for implementation of developmentprograms and services. Such NGOs now exist in all the districts of the state; the recentencouragement of NGOs to participate in watershed management prompted many toset up new agencies. As most districts of Chhattisgarh have some tribal populationand these groups are generally poor and deprived, NGOs work considerably withtribal constituents. However good NGOs with a proven track record and demonstratedcapacity to work with the community are scarce. Attempts will be made in areaswhere good NGOs are available and are working and residing permanently in thatarea, to link them with the project by using their expertise for training and capacitybuilding and also maybe by giving them membership in PFTs.

> Activist Organisations: Activist groups including mass tribal organizations focus onawareness generation amongst tribals regarding issues related to their rights andentitlements. These groups are guided by the conception that awareness andmobilisation 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 toNGO leaders and in sense can be considered offshoots of the mainstream NGO sector.Chhattisgarh by now has some activist organizations. These activist groups displayconsiderable ideological diversity- from Gandhian to Marxist. By and large, theybelieve that project based development work will not be effective unless the poor areempowered and the power based equations change. They are also generally opposedto foreign aid and as such are likely to oppose projects like DRPP. They however doengage in lobbying with the government and demanding responsive action and policyto benefit tribals. In case of issues of co-operation, co-ordination or clarity regardingthe project and its implementation, the Gram sabha will be responsible for takingdecisions and resolving such issues.

Political Groups: Extreme leftist (Naxalite) groups committed to the overthrow of thestate, have made inroads to some tribal pockets of Chhattisgarh viz. Dantewada,Bastar and other districts bordering Andhra Pradesh and Maharashtra and Surgujabordering Jharkhand. The Gram Sabha will be responsible for clarifying any doubts orconfusions that may be raised by any such group regarding the DRPP project and itsimplementation.

3.3 Tribal Development Strategy for DRPP

As an identified poor and vulnerable group in all the districts under DRPP, theinterventions with the tribal communities will bear both strategic and practicalconsiderations in mind. The following are the goals of the strategy for tribal developmentwithin 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 toinfluence its decisions and outcomes for the tribal constituents

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

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

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

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

> Rigorous capacity building of tribals' village level organisations and its leadership toplan, 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 totribal 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 fromproject govemance, the following is proposed:

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

I . DRPP will attempt to cover and facilitate the participation of all the tribal BPLfamilies in a settlement.

2. In those villages where the ST population is above 30 percent, the tribalwomen living in that area will be encouraged to form the first CIG. This willdemonstrate the priority of the DRPP and establish clearly the section withwhich it is most concerned.

3. Number of proposals approved, investments made in tribal CIGs, and thequality of performance and participation of tribal CIGs will count as keyindicators of a village's performance and will influence the decisions relatedto future allocations in that village. There will be an annual plan, which willaffect future allocations. Target area will get less money if the number ofproposals, investments made and participation quality fall below a minimumthreshold. This annual review will be done in a humane manner, so that thecommunity is not penalised for bad performance for reasons beyond its controllike natural disasters. This will be the thumb rule for deciding on the minimumthreshold.

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 performanceappraisals and reward systems.

5. An annual meeting of all tribal CIG representatives from within the districtwill be organised by the project office in order to collectively review theprogress and problems faced by the project and its tribal partners. Separatebudget provision of about Rs. 2,500/- per meeting will be made under theproject for this.

6. The project office will remain alert to moves to subvert equal participation oftribal CIGs in DRPP. This will be carried out through extensive review withPFTs and the monitoring of norms specified under village level measuresabove.

7. In order to ensure adequate pooling of experience and formulation of sharedstrategies to work with tribal communities, it will be useful for the projectteams to selectively function and interact at the regional level as well. Thoughthere are no regional level structures envisaged in DRPP, project teams fromfive districts can be formed into one regional cluster on the basis of thehomogeneity of tribal's socio-economic profile. There will be three suchclusters two with five districts and one with six districts (Since there are 16districts in the state). CIGs that perform well will be selected for cross visits sothat healthy exchange of ideas can take place. Separate budget provisionwithin the project will be made for cross visits. One cross visit within eachregional cluster will be organised every year. Cross visits will begin from thesecond year of the project.

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

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 DRPPdistricts. The cost implication for the same will be minimal for such a reportand 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 DRPPoperations and work strategies. Tribals constitute a vast number of the poor in the stateand the areas they reside in also form the poorer areas in the state. However, unlike thegeneral perception of tribals in India, in Chhattisgarh they are not marginalized orvoiceless of powerless, and they are recognised both for their poverty and for theirstrengths and potential and political and social voice. The set of strategies and activitiesthat would ensure that the project is sensitive to tribals would need to be a part of theoverall approach and strategy of the entire project itself and not a separate set ofinterventions. However caveats and implementation operation guidelines must ensure thatproject is aware that although tribals are a large section, they need specific and morefocussed effort.

There are a fair number of activities specifically identified with promoting developmentof tribals such as mentioned in the box below. But these will need to be in consonancewith the overall implementation schedule and framework of DRPP, to ensure that (whichmaybe necessary in other states), tribals are not addressed as a minority group withproblems 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 aboveindicators (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.

3.3.3 Cost estimates andfinancing plan

I. Annual meetings of CIG representatives:- Annual meetings of the Tribal CIGs havebeen planned in order to ensure that sharing of information takes place amongst suchgroups. The cost for these meetings have been integrated to the total capacity buildingcost 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

2. Six monthly meeting of District Tribal Development OfficersAssumptions:-

> 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 visithas 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 specialdevelopment predicament of tribals in DRPP districts will call for special efforts to ensurethat tribal community benefits fully from the project. Training and Skill Building Needsfor tribal development exist at all levels of the project and these have been identified asunder:

Level HRD Needs Potential SourcesCIG 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 fromForest Department)

PFTs Context of tribals in DRPP Government Department for tribaldistricts development.

Capable NGOs working in tribal areas

Land Issues Officers from Government RevenueLabour 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 economicconstraints faced by the vulnerable groups that the project will target. Given the presentsocio-economic set up, it is expected that DRPP's main interventions will target thefollowing sectors.

> NRM based livelihood development through agriculture, livestock, and forestryresources

> 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 broadprinciples 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 notby outsiders) approach in the project, the DRPP design itself meets the Bank policyrequirement of ensuring plans, which gives "full consideration to the option preferred bythe indigenous people affected by the project". However, where STs are a minority in adistrict or village, their views may not always be effectively heard in decision-making.Such concerns have been addressed before finalising the strategy paper. The Governmentheld public consultations to ensure that the draft of the tribal strategy paper is bothfeasible and acceptable to indigenous people.

Before the consultations, advance notice or advertisement (giving people a convenientlocation where they can read the draft paper in an appropriate language) were given toensure that people are aware of the opportunity to learn about the tribal developmentstrategy and comments are forwarded on the project. The public consultation were held in3 phases with phase I restricted to Govt officials, NGOs. And the phase 2 and 3 involveddirect interaction with the beneficiaries viz. villagers.

> Phase 1 from March 19-20The invitee included Mr. Amitesh Shukla Hon. Minister of Panchayat & RuralDevelopment, 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, FinanceController Mr. Jitendra Singh & PFT,Co-ordinator Shri G. S. Tekam.

The participants included members from PRIs, Government Officers, NGO personnel andpeople'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 andempowerment of disadvantage section along with ensuring transparency in execution withpeoples participations and involvement of PRI, to which the Secretary P&RD and ProjectDirector MPDPIP informed the house that the project will institutionalized the core valueof peoples participation empowerment, decentralization, leaving through experience andtransparency with collaboration and co-ordination, further as the funds are placed directlywith the poor especially tribal, women threby providing them ample opportunity fordevelopment.

) Phase 2 and3 from 25-26Augutst & 16-18 November

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

Their concerns were adequately answered by the state represewntative that under thisprogramme any trade / activities can be undertaken to their convenience and wheretraining 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 forWork initiated by the State Govt. Apart from which, all the villagers can pool in moneyso that one or two CIG can be formed, which can return the money back to the villagerssubsequently.

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

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

Annexure 1List of Scheduled Tribes in Chhattisgarh

1. Agaria2. Aandh3. Baiga4. Bhaina5. Bharia, Bhoomiya, Bhiuhar, Bhunia, Faria, Pamila, Pando6 Bharta7. Bhil, Bhilala, Barela, Ptaclia8 Bhil Meena9. Bhuijia

10. Bigar, Beayar11. Bhingiwar12. Birmul, Birhor13. Damor, Damrya14. Dhanwar15. Gdaba, Gadba16. 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. Halbi18. Kamar19. Korku20. Kawar, Kavar, Kiur, Chekha, Rathia, Tanvar, Chattri21. Khervar, Kondar22. Kharia23. Kond, Kand24. Kol25. Komal26. Korku, Bovchi, Movsi, Nihal, Nahul, Bodhi, Bodiyo27. Korva, Kodaku28. Majhi29 Majhwar30. Maawasi31. Munda32. Nagasiya33. Oraon, Dhanka, Dhangadh34. Pav35. pardhan, Pathari, Sroti36. Pardhi, Bhaliya, Bhoaliya, Chitta Pardhi, Langooli, Pardhi, Faans Pardhi, Shikari, Takankar37. Prja38. Sahariya, Sahwariya, Sahria, Sahaeriya, Sosiys,Sor39. Saonta, Soonta40. Saur41. Sawar42. Sonra

Annexure 2List of Primitive Tribes in Chhattisgarh

I . Abujhmariya2. Baiga3. Phadi Korwa4. Bhariya (Patalkot)5. Sahriya6. Kamar7. Bihor

Annexure 3Expected District Level Interventions

3.1 Agriculture and Allied Activities

Investments in sustainable land and water resources development: Tribal farmerspractice cultivation under adverse and uncertain conditions. The small land holdings arepoor quality, marginal and rainfed. There is poor potential to invest in the improvement ofland productivity thus returns are low and unassured. In order to close the investment gapand contribute to long term, sustainable improvement in productivity activities, thefollowing 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 localizedprotective irrigation.

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

Improving Extension Services and Input Provision: Agriculture extension services arerather underdeveloped in Chhattisgarh and these are at their thinnest in locations wheretribal cultivate their marginal lands. There is little technology dissemination and adoptionby farmers and basic provisioning of seeds and inputs is absent. DRPP will supportproposals from CIGs of tribal resource poor farmers interested in undertaking any of thefollowing or allied activities, if received.

> Identification and hiring in of village based Para-Extension Workers (PEWs) by ClGsfor providing counselling and technical guidance to tribal farmers. These PEWs willneed to be equipped with basic technical information and will serve as a link betweenfarmers and sources of inputs and technology. Para Extension Workers may also beidentified by more than one CIG in order to ensure more efficient and cost effectivecoverage. The DRPP project team will help in building the capacities of such villagebased workers identified and/or recruited by CIGs through linking with sources oftraining, technology and inputs.

> CIGs may formulate proposals for group-based provision of draught power andagriculture implements, which may be supported by DRPP.

> CIG may also take up the management of decentralized seeds and fertilizer retail anddistribution outlets undertaking collective procurement and timely distribution andwill hence, overcome cost disadvantages.

Promoting diversification to horticulture and livestock: Agriculture change strategiesamong small, marginal and resource poor farmers cannot rest alone on improving cropproduction. The limits to land holdings make it difficult to stretch crop husbandry beyonda level and hence, diversification becomes imperative. Inability to invest and lack ofaccess 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 fromCIGs of tribal farm families for horticulture and livestock development.

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

districts. The strategy focused on pooling together resources for inputs, diversifying tohorticulture and livestock rearing and ensuring on-farm value addition to production. Itcombined private initiative with collective decision making in order to optimise use ofresources, maximize group returns and derive benefits from scale. Elements of thisinitiative 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 theproject on receipt of such proposals and will form the core of its support to agricultureand allied interventions by the farmers organized as CIGs. In order to protect the tribalpopulation from food shortage and hence turning to "distress" purchases in the leanseasons, the DRPP will respond favourably to CIG proposals and actions in the followingdirection:

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

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

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

3.4 Forestry

A large number of Non Timber Forest Produce (NTFPs) are collected by tribals across thestate as in the DRPP districts. The most important of the NTFPs are nationalized andthese include tendu patta, sal seeds, gum and harra. Collection and marketing ofnationalised products is carried out by the Chhattisgarh State Minor Forest ProduceCooperative Federation. The important non nationalized forest products include imll,kasa, awla, kusum, lac, honey, chiraunji, mahua flower, bahera and safed musli, all ofwhich are found in the DRPP areas of tribal concentration. Typically, the market rates forthese 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 fromforestry activities on receipt of such proposals through the following kind ofinterventions:

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

> Making linkages for technical advice and providing financial support for valueaddition 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

carefully by the project for their viability. The project may make pilot grants to CIGs inthe initial year with a clear emphasis on improving learning and experience building inNTFP 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 familieshave 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 threatof dispossession from powerful landed upper class elite, insecure tenure arrangements,unfair share cropping systems pitted against the tenants. These unlawful practices are amanifestation of the social inequities and they serve to keep the rural poor in chronicpoverty and deprivation. Further, these erode the stakes that the poor have inimprovement of their land resources and present the biggest challenge to long-termchange in their status.

Yet there are issues that can be addressed by a sympathetic and sensitive DRPP projectstaff. Access to Government revenue records can be made easy by a process of awarenessraising and training of social animators in revenue record keeping. Action on these frontsis possible without any serious intra community conflict. It will help in building thecredibility of DRPP in its target segment and will establish it as different from otherprogrammes.

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. Anagency with a good record of working on land issues will be invited to provideresource support. If any field team has the inclination to take up more intensive workon land issues, it will be supported by the top management. Work on these issues willbe counted as legitimate project work.

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

> The project teams may liaison with local administration for land allotment to landlesslabourers 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 andfor DRPP districts in particular, clearly demonstrates that wage labour is a majorcomponent of livelihood for tribals. Limited land resources and virtual landlessnessamong large sections makes it imperative for them to seek wage labour on farms in cities

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.

3.6 Education and Health

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

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

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

> As a critical contribution in the health sector, DRPP will respond favourably to CIGproposals for provision of safe drinking water in tribal settlements. Project teams canassist 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 safemotherhood services being provided by existing departmental and /or special projectsin the DRPP areas.

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

Annexure 4Presentations, 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 adequateinformation and opportunity to the people to learn about the tribal development strategyand comment on the project. The advertisements were sent earlier and the same presentedagain at the Village Consultations. Enclosed below are the summaries of the tribaldevelopment strategy and Environment Management Framework presented to villagersfor the village consultations.

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

4.1.1 Tribal Development Strategy -A Suntmary for Village Consultations

District Rural Poverty Project (DRPP) - An Introduction

The DRPP is a people centred, participatory, poverty alleviation programme that targetsthe 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 highlightsdemand-sensitive development, promoting and supporting effective decentralisedgovernance 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 formCIG.

> A provision of Rs. 30,000 for every selected family has been made for the totalproject 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 fromthe Sub-project have to contribute to over 15% of the investment cost, out of whichthe CIG must deposit 5 % of the total cost of the project in cash in the starting of theproject. The CIG has to give another 10 % of the total cost of the project for villagedevelopment plan. This money goes into Apna Kosh. This amount is to be paid onesthe sub project ends. This 10 % can also be paid in the form of labour. The amountdeposited in the Apna Kosh will not be used in the project period (DRPP). In fact theywill be put into fixed deposit for future village development work.

> Projects like tobacco growing or liquor making etc. will not be supported by theproject.

> 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.

Significance, Role and Participation of 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 developmentwithin 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 andgenerate 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 andresources.

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.

> In those villages where the ST population is above 30 percent, the tribal women livingin that area will be encouraged to form the first CIG. This will demonstrate thepriority 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 ofperformance and participation of tribal CIGs will count as key indicators of a village'sperformance and will influence the decisions related to future allocations in thatvillage. 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 getless money if the number of proposals, investments made and participation quality fallbelow a minimum threshold. This annual review will be done in a humane manner, sothat the community is not penalised for bad performance for reasons beyond itscontrol like natural disasters. This will be the thumb rule for deciding on theminimum threshold.

4.1.2 EnvironmentManagement Framework -A Summaryfor Village Consultations

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

The project has two components: (1) Community Investments and (2) Institutional andHuman Capacity Building. The project would provide matching grants to groups ofdisadvantaged people to finance priority, small-scale, investments identified by thegroups 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 theentire population of several villages (for larger multi-village projects).

Environment Management Framework

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

The purpose of the Environmental Management Framework (EMF) is to ensure thatneither the livelihoods of the poor nor the environment are compromised. It is to explorepossibilities of making the efforts to improve livelihoods as well as conservation of theenvironment complementary so that there are sustained benefits from the developmentalactivities initiated.

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

The physical, biological and social impacts of the probable sub-projects have beenpredicted 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 capacitybuilding requirements and the institutional arrangements.

Environmental Assessment of Sub-projects

Based on the scale and nature of sub-projects currently emerging from DRPP projectselsewhere in the country, the screening procedure for the DRPP has been designed. Fourcategories 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 aprogramme component focussing only on training which involves no use of naturalresources.

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

> Category B: If the proposed project has a significant or irreversible or long-termnegative impact (such as bore well leading to depletion of ground water), LimitedEnvironmental Assessment (LEA) is suggested. This will be done by the DistrictEnvironment 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, EnvironmentalImpact Assessment is suggested. This will be commissioned by the State Project Unitin consultation with the State Environment Agency.

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

Training

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

Institutional Arrangements

At the State Level the Project Unit will be overall responsible for implementation of allproject 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 thePFTs and a nominee of the Panchayats. This DET will undergo intensive training fromthe state Environment Agency. The PFTs will be responsible to ensure collection ofinformation for environmental screening during subproject preparation by the CIGs.Where sub-projects may require Limited Environmental Assessment or ELIA, the PFT willrefer 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 usingEMF guidelines and outputs, and the environment mitigation measures prescribed in theapproved sub-project are implemented.At the state level, the Environment Agency will conduct six-monthly supervision of theEMF, selecting a sample of subprojects from different categories of environmentalassessment.

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 projectand 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 PovertyProject (DRPP), 19 - 2e March 2002, Organised By The Department Of Panch(ayat &Rural Development

RepresentationThe workshop was attended by the Chief guest, Hon. Minister of Panchayat & RuralDevelopment, Mr. Amitesh Shukla, Hon. Minister of state, Mr. Tuleshwar Singh andHon. Minister, S.C.S.T. Commission, Mr. Ramdayal Uike.

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

The participants included members from PRIs, Government Officers, NGO personnel andpeople'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 inreducing poverty because of paucity of funds through DPIP with assistance from theWorld Bank an effort has to be made to attack poverty.

> Hon. Minister of state, P&RD in his speech said that the programme beingimplemented for the upliftment and empowerment of poor tribal should address thefollowing 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 guidelinesinformation on implementation and objectives and approach of the programme. Theproject 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 useproject funds for some specific activities only. However, the activities on which fundsare utilized must fulfill the objectives of the project. Community will be free to seektechnical 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 isdemocratic, healthy and participatory in nature.

> To develop participation and feeling of ownership, create credibility and foster aculture of local financing, cost recovery and user charges by requiring communitycash contributions for Sub-projects and creation of Group and village funds;

> Strengthen local governments at the district and village levels by giving themresponsibility for the budgeting, its disbursement and monitoring of group activities.

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

Feedbackfrom NGO representatives

Smt. Hemlata Sahu, Mahila Shiksha Kalyan Evam Prashikshan ParishadFor selection of beneficiaries a baseline study and wealth ranking is being done in theGram Sabha. This could be done on the basis of the IDEP implementationand 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 5percent advance is not justified for a poor person. It could be given in the form oflabour, 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 aspectsneed to be taken into consideration.

> The out line of the project seems promising but in the later stage much governmentinterference might discourage the beneficiary. More public participation and lessgovernment interference needs to be ensured.

> Over and above economic planning, planning specially on education, health, socialcrime, torture against women and children, clean environments, prohibition againstdrugs etc. needs to be looked at along with economic development to achieve thegoal.

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 thereality 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 theconsequent categorization and finalization of the beneficiaries.

> It must be ensured that the project process is bottom up i.e. from the beneficiary to thestate level.

> It must be ensured that people from similar economic situations and with similarinterests 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 fromthe 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 forsuccessful implementation of the programme:

> On Tribal strategy. The group focussed on the relevance of entry-point activitiesespecially 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 areasv/ 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 atthe same time other poor people should also benefit from the DRPP programme. Henceeach of the CIG members should be made aware of the programme and related activitiesso that the group becomes self-sufficient.

> Role of NGOs This group suggested that among the three members of PFT if two arefrom G.O. then third one should be NGO personnel.. During the discussion thefollowing 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.

V Priority should be given to the widow, divorcee, dependent, landless, andphysically handicapped persons.

V While selecting the activities stress should be on women - orientedactivities 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 asprimary source and the data needs to be collected through:

V PRA technique/ House to House visitV Group - meetings of men & women (combined as well as separate)V Wealth - rankingV 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.

4.2.2 PHASE 2 - August 25-26, 2002: Consultations With Gram Panchayats InBilaspur With Selected Villages Under DRPP Pilots.

4 2 2a Notice and information circulated in villages before the meeting

All the villages are hereby informed that Chhattisgarh Government has proposed tolaunch the DPIP Programme with the help of the World Bank. The main features of thisprogramme are as under:-

I. This is an effort of the government to reduce the poverty of villages, inaccordance with the needs of the people.

2. The main target group of the project is the poorest of the poor, especially tribaland 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 thevillage people, forming groups, enhancing the capacities of and strengthening thegroups, preparation, implementation and evaluation of sub-projects includingbudget preparation and allotments. The project will emphasise on learning byexperience.

5. A process of wealth ranking will be followed among the families in the villageand 70% of the poorest families will be selected as beneficiaries. In apredominantly tribal or schedule caste village, all the families will be selected inthe 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 jointlyselect the economic activity they want to carry out. The maximum membership ofthe group is not restricted.

8. The economic activity/project selected by the group will have to be sanctioned bythe 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 intothe Apna Kosh account, for use in village development.

11. To ensure transparency in implementation of the group's activities, every groupwill maintain a cashbook and a register, and will have to present their expendituredetails 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 BilaspurCEO Janpad - KotaMr. Ranjan Jha

World Bank Representatives: Mr. Luis Constantino

Ms. Madhavi PillaiMs. Varalakshami

NGO Representatives: Gram Sewa Sansthan,Vasudha Mahila Manch,Mahila Shiksha Kalyan Evam Prashikshan ParishadSanket 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 withpeople. A number of skills were identified by the gram sabha as skills that already existamorigst people. Some of them were:-- Fishery- Goatery- Forest related skills- Poultry- Construction of Stop dams- Construction of Water pond- Construction of roadsA point was, thus, put up by Mr. Raut that those projects should be identified of whichpeople already have some knowledge and skill. He also added that projects which areviable in nature should be given priority. However, the decision related to the project liescompletely with the people and members of the CIG and all sub projects are approved bythe 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 ofGorelIa

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

World Bank Representatives: Mr. Luis ConstantinoMs. 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 Ivillages, only 3 come under the pilot project.

54 CIGs had already been formed in the gram panchayat and 31 had alreadyopened 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 thisamount. They were advised by Mr. Rai, CEO Zila Panchayat to return the moneyto their creditors as soon as possible and to deposit money only when they havetheir own.

V There was a lot of anxiety amongst people regarding when the project is going tostart. 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 projectactivity. Some other sub projects that the CIGs had decided were brick kiln,vegetable shop, kirana / ration shop, poultry, thread making, auto rickshaw, tubewells, Sangeet Mahavidyalaya, etc.

V Some people also expressed desire to get the money on an individual basis. Theywere 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 forgrowing 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 (villageAndliyaar 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, dominantin 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 tounderstand the programme and give their feedback at the consultation meeting scheduledon 18'h November 2002. An introduction to the programme was given to the people andthe facilitators informed them that in case they had any issues of concern they must raisethem 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 thesescattered hamlets, which are independent by virtue of the different communities livingthere.

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

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

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

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 fromDRPP 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 presentagriculture skills since the same has been imbibed and not inherited. Upon furtherinquiry, the members pointed out that since they do not use 'modem' agriculturepractices such as use of fertilisers, this pointed to the need for agricultureextension 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 fedcattle. According to the group, the forest departments had already indicated thatthey could provide land for pastureland development.

/ Oraons, traditionally forest dwellers, are very knowledgeable about local forestproduce and its usage, and use of forest products is an integral part of their dailylives. 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 tosustaining their livelihoods. The Oraons felt that this support is required both forincreasing their own procurement capacities and to market within the existinglocal markets.

V Many of the Oraons today are labourers working in the neighbouring stone cuttingquarries, 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 roadconstruction. 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 marketingchannels 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 andrelations of exchange. The Oraons will require substantial managerial and skill

support in organised livelihoods systems and marketing and financial support toincrease their capacities to earn better from their traditional livelihood sources.

Forming CIGs

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

3. 17th November, 2002Village: 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, JanpadPanchayat, PendraDr. Vishwakarma, PFT member, DPIP-MP, Rewa District.

Facilitators: Sanket Development GroupNote: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 notbeen able to see themselves as a part of this project. Therefore this meeting was used tounderstand the economic situation and livelihood options available to this community inthe 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 15acres including farmlands. It consists of a community of 1 I families of the Dhanuhaartribe. This tribe was originally a hunting tribe, deriving its name from the 'dhanush' orbow (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 forsale in the 'haat' or market and in the nearby villages where there is a demand for thesame. When the articles are sold in the village 'haat', the maker often gets a very lowprice for them. While both men and women are engaged in the making of the articles, it isthe men who do the marketing and trading. The bamboo used is procured by the maker orsupplied by the buyer.

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

They are also engaged in collecting forest produce for self-consumption and for sale. Thisincludes 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 theygrow mostly 'jowar' for self-consumption.

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

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

/ The community has developed a specific skill related to bamboo work over theyears. Enhancing this skill, formalising procurement systems for raw material andencouraging further expansion and introduction of variety in this activity will helpthe community in developing this activity into a viable livelihood option.

/ The traditional market system of the community is a barter system, and usuallymuch of the exchange takes place with neighbouring communities who theDhanuars are familiar with. As interactions with a larger market economy increasethe channels, expertise awareness and communication systems need to bedeveloped in the community.

V Most importantly there are very few available resources with this community tostart an enterprise. Existing resources thus need to be understood and tapped totheir fullest potential in order to ensure sustained livelihood options.

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

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

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

There could not be a full meeting in Amadand since many of the villagers were out onwork 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 beenformed in the village for the last six months and the people were still waiting for theinitiation 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 Muslimcommunity.

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

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 hasbeen initiated and supported by local leaders and the govemment to train women to workat home. The effort however is at its initial phase, the market for the same still needs to beexplored and there is a great degree of talent, skill and quality required for the productionof this embroidered cloth. It definitely came across as an option for those talented inembroidery, but the certainty of market and sustenance of the same as a livelihood optionseems to be questionable till one sees the project move further.

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

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

No. of Villages covered 2

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

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 meetsubsistence needs through farming on the lands - it is not clear whether they ownthe land or are sharecroppers.

/ An effort was made to look at occupations which are not land based. Currently thecommunity is involved in activities like goat rearing, pisciculture, carpentry andshoe making. The community discussed the viability of expanding these activitiesin terms of skills, market facilities and existing resources.

v The members also shared the concern that there might be a danger if all the CIGstake up the same activity. For example if all of them take up carpentry then wherewould 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 andminor irrigation work.

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 fivemembersThe main activity pursued by women at present besides agricultural labour wastrading vegetables between markets and households, of which the profits made areminimal. The women discussed a scope of expanding this activity to a largertrading activity, exploring better markets where the same could be sold for higherprices. They also discussed that they could diversify and trade other goods likegrain, goats, vessels, etc.

Observation

V Processing of leather and using it for shoe making is the traditional skill of thecommunity. While the older generation is aware of the various processes andtechniques involved, they emphasised that the younger generation has not learntthis skill. This may be attributed to the social stigma attached to this activity andhence the community historically. The community has picked up new skills likegoat 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, whoreside in the village.

Major issues of concern raised and addressed at the meeting:

/ Can the DRPP funds be used as a common fund resource from which individualscan draw money to start their own enterprises?

V Another major concern was that the groups have been formed and been involvedin saving activities for the last six months, and have been waiting for the funds toinitiate their sub projects.

V The money that is given for village development by the CIG should not beexhausted in one time. What are the ways in which this could be kept alive andfloating?

V Will the number of CIGs remain the same as they are today? There are manypeople who have lost faith and disbanded from the CIGs. It was clarified that oncea few CIGs start their work and are successful others would and could also formmore CIGs later. There is scope for linking with financial institutions, which willhelp in strengthening and expansion of the CIG and its activities.

V Has it been successful in other villages?

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

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

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

Representation:

People: Semraha is dominantly a Baiga pada, hence mostlymembers of the Baiga tribe were present. There were someindividuals from the Rathaur community who comprise afew households in the pada. Both men and women werepresent, with the women comprising about 30% of the totalgroup present.

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

Government Functionaries: Mr. Anil Rai, CEO, Zilla Panchayat, BilaspurMr. Paraste, CEO, Janpad Panchayat, GorellaDr. Mishra, CEO, Janpad Panchayat, PendraMr. Pradhan, ADO, GorellaMr. Khokhar, ADO, MarwahiMr. Thakur Singh, Janpad Panchayat, PendraMr. Dau, Janpad Panchayat, PendraSachiv, Andhiyaar Kho

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

Representative fromthe World Bank: Mr. Warren Waters

Representativesfrom SanketDevelopment Group: Dr. P. Bose. Maheen Mirza, Sayantoni Datta, Neha Pradhan

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

Major issues of concem raised and addressed at the meeting:

/ The absence of a lump sum of money, which is, required as initial contribution ofeach member of the CIG.This issue was raised by a woman belonging to the Rathaur community first, andthen 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 tothe 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 ayear 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 isthat of 8-9 acres) if at all. There are many landless labourers also. What can bedone 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 doneon a small piece of land and once they, start getting their returns, they can takelarger pieces of land on lease.It is difficult to meet subsistence needs and family members are constantlyengaged in labour in other farms or in government programmes. They get paid ingrain 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 electricityis something which will take a long time. Hence, the people can use alternativeslike diesel pumps to draw water for irrigation. They can come together as CIGs inthe village, pool their resources together and take up minor irrigation projects likelift irrigation to address the water problem in the village.Is there a minimum number of CIGs that need to be formed in the selected villagebefore 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 initialcontribution and prepare a proposal for the sub-project 'they want to initiate. Themoney will then be sanctioned to them. After a period of time, someone from theblock or district level will come and see the sub-project being managed and thenmore money will be sanctioned. The Gram Sabha would have to be informed ofthe sub-project and its management, all through the process also.The process of this scheme has to implemented and managed by the peoplethemselves. The final say will be that of the Gram Sabha and the CIG will have tobe working with the Panchayat. The returns will also have to be managed so thatthey 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 likedigging of wells, procurement of pumps, and construction of tanks (which can beused for pisciculture also) were demanded and suggested by the people.These demands and suggestions were made by the people.

v The government response to the same was that such projects could be taken up bythe members of the CIGs by pooling in their resources and using the projectmoney. 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 thisexercise will be analysed at district and state level. This data will help in framing,monitoring and learning indicators.

Appendix 4cBaseline Data-Household Survey

1. Name of the village : Mohalla/ Wardno._

2. House number :_ Familyno._

3. House (1) Pucca (2) Kutcha (3) Kutcha/ Pucca4. Name of the owner

ShrihName of the father/ HusbandShrih

5. Caste :Category

6. Details of the family

Sr. Name Age Relation Occupation Qualificationno. with the

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 SharedWell

Tube wellRiver/ nullah

Others

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

Charas

(7) Others

12. Major CropsKharif Rabi Others

13. Animal Husbandry Buffaloes Cows_Goats

Sheep_ _ Hens Others_

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

15. Remarks

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