EXECUTIVE SUMMARY. The ToR (Terms of Reference) had laid down following objectives that provided the bench mark of the study:

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2 EXECUTIVE SUMMARY The study JFM Implementation Models in Orissa was conducted by Amity School of Natural Resources and Sustainable Development, Amity University, Uttar Pradesh. The study has been sponsored by Orissa Forestry Sector Development Project (Assisted by JICA), Department of Forest and Environment, Government of Orissa. The study covers four forest divisions of Orissa comprising of 36 VSS (selected in consultation with Project Management Unit of OFSDP). The study period was initially for five months. It was extended by one month due to Maoist s insurgency in Rayagada forest Division. The JFM models under schemes of FDA, RLTAP, OFSDP and UJFM were analyzed and compared with a hypothesis of improved forest governance and for its positive impact on ecology, economy and livelihood of forest dependent communities. The ToR (Terms of Reference) had laid down following objectives that provided the bench mark of the study: To analyze and compare the provisions and institutional arrangements under different Joint Forest Management Projects/implementation models in Orissa, To compare and contrast the elements of forest governance under these models/practices with focus on stakeholder s participation, To analyze the impact of such projects/schemes on local ecology, economy besides social and livelihoods issues, To document best practices, delineate determinants of success and list out key challenges and road blocks, and To suggest policy and implementation strategies for enhancing efficiency of JFM in terms of participatory forest governance, sustainable forest management and equitable community gains. Six villages (Kutraposi, Belaighati, Kodopada, Mardanga, Jhimirpali and Balim) of Deogrh division, ten villages of Angul division (Majhigohirapasi, Korada, Nialu, Khindo, Mohinipal, Nuakheta, Kantamegha, Jerenga-Budhipahad, Kanakeri-Bahalsahi and Arakhapal), ten villages of Rayagada division (Maudiguda, Raikona, Kitting, SunaKhunti, Souraguda, Lipesu, Dasaridang, SorisaPadar, Ranipadar and Kosakadanga) and ten villages of Koraput division (Kodamguda, Podiguda, Janiguda, Khadaguda, Bariguda, Dengri, Bodapadu, Mulasankar, Kutinga and Minapai) were covered under the study and field survey.

3 A sample plot measuring 30 m x 30 m was laid to record tree species > 25 cm GBHOB. Four plots measuring 5 m x 5 m along the diagonals of the same plot were selected to record shrubs and trees < 25 cm GBHOB. Five plots (one at the centre and one per quadrate) measuring 1 m x 1 m were selected to record herbs, grasses and regeneration of tree species and above ground biomass from each village. The study constituted 7 categories of samples comprising of: (a) Heads of the Household (288), (b) VSS s Representatives (36), (c) DFOs (4), (d) Rangers (8), (e) Foresters (12), (f) PRI Representatives (12), (g) NGOs (8) and NTFP Traders (4). Provision and implementation of JFM under FDA, RLTAP, OFSDP and UJFM were taken as unit of analysis. Response of HHs, DFOs, Rangers, Foresters, NGOs, PRI members, NTFP traders were examined as per their perception analysis through well laid out schedule. The findings have been accordingly classified. Institutional Arrangement and Provisions National Afforestation Programme (NAP), funded by NAEB, MoEF, GoI. is implemented through a three-tire institutional set up; (i) State Forest Development Agency (SFDA) -- a federation of all existing FDAs at the state level, (ii) Forest Development Agency (FDA) as federation of all JFMCs at Divisional level and (iii) Joint Forest Management Committees/Eco-Development Committee at village level. Similarly, Orissa Forestry Sector Development Project (OFSDP), supported by JICA is operated through a three tire structure namely; (i) Project Management Unit at state level, (ii) Divisional Management Unit at Division level and (iii) Forest Management Unit at Range level to facilitate the activities of VSS. These units are autonomous bodies and are registered under society registration act. Revised Long Term Action Plan (RLTAP) is a centrally sponsored scheme, under Special Central Assistance (SCA) operating through Planning and Co-ordination Dept., GoO. It is implemented through 22 departments. Forestry operations are executed as sectoral programmes that get implemented by respective Divisional Forest Officers under the guidance and supervision of PCCF. Universalisation of JFM (UJFM), is a State Plan scheme being implemented by DFO under supervision of PCCF. In all the aforesaid four schemes there is a provision of General Body and Executive Committee in every VSS. The General Body shall have two adults one male and one female from every household. The general body elects 11 executive members with at least five women members. OFSDP has a special provision for Animator to

4 coordinate between villagers and EC to support and coordinate the working group with other agencies and members. Forest protection, preparation and implementation of Micro Plan and Annual Work Plan and capacity building including diversification of other efforts to reduce forest dependency are primary aims of VSS in all the four schemes. FDA covers all forest divisions of the state whereas RLTAP is only in undivided KBK (Koraput, Bolangir and Kalahandi) districts that have been split now into 8 districts. OFSDP operates in 14 forest divisions of 10 districts including 3 wildlife divisions. UJFM is in 5 forest divisions of Orissa, viz. Keonjhar, Bonai, Sundargarh, Athagarh and Angul. FDA, OFSDP and UJFM models are specific development projects of forestry whereas forestry is just a component of RLTAP programme and is a tool to achieve the objective of job creation in far flung areas. The main objective of FDA is sustainable development and management of forest resources. RLTAP has its objective to reduce forest dependency with improved food security by providing alternate income generating livelihood options for local people particularly the tribal to reduce food insecurity and also to improve forest cover. The strategy here is to work on watershed basis. Restoration of degraded forest is the primary objective of OFSDP, second objectives being poverty reduction and livelihood generation. Regeneration and eco-development of degraded forest in mining areas to improve economic status of rural people are the major objectives of UJFM model. In nutshell, in all these schemes, the regeneration and restoration of forests are the components to achieve different ultimate goals. Benefit sharing mechanism is same in all the four JFM models and is being executed as per JFM resolution, It provides 100 per cent of the Intermediate harvest of firewood, poles, small timber and Collection of NTFP items and 50 per cent of final harvest after deduction of proportionate harvesting cost. AR, ANR and management of Bamboo forests are the major and common components of OFSDP, RLTAP and FDA models, whereas UJFM has provision only for ANR with a gap plantation up to maximum of 300 seedlings per hectare. UJFM does not have block plantation. Besides EPA, SMC and community mobilization are common features of all models. In addition to this, OFSDP and FDA have coastal plantation and biodiversity management. Though, Village Forest Development Fund is the major incentive for VSS/JFMC in both the models; a grant of one lakh is a special feature of OFSDP

5 model. Moreover, infrastructure support to VSS, IGA, livelihood linkages, publications are important constituents available in OFSDP only. OFSDP has its own prescribed Micro Plan format for all division to ensure uniformity, which is not there in other models. Micro Plan through active participation of community is facilitated by NGOs in OFSDP model where as the same is facilitated by forest department in other models. Audit at VSS level by a Chartered Accountant is prescribed only in OFSDP. Though Mechanism for Post Project Sustainability (MPPS) is not clearly spelt out in any of the models, provisions for Phase-In and Phase-Out along with lateral and vertical linkages with development partners working in the project area are two withdrawal strategies of OFSDP project. Forest Governance The Forest Governance was examined on 8 parameters - Democratization, Transparency, Efficiency, Gender and Equity, Accountability, Ecological Sustainability, Institutional and Social Sustainability, Economic and Livelihood Sustainability. The survey constituted interviews with VSS representatives and other stakeholders such as forest department, PRI representative, NTFP trader, local NGO representative to gauge their perception about forest governance in all the four schemes. Examination of these 8 parameters provided the following results: i. In overall achievement, OFSDP scored the maximum followed by UJFM, FDA and RLTAP. In other words, minimum gap was observed for OFSDP while maximum gap was observed in RLTAP. UJFM and FDA had almost equal percentage of gap i.e per cent and per cent respectively. ii. Comprehensive examination of Forest Governance reveals that ecological sustainability has highest score followed by gender and equity, institutional arrangement and efficiency. iii. The other parameters in order of achievements were accountability, democratization, transparency and economic & livelihood sustainability. In other words, maximum gap was observed in livelihood sustainability followed by transparency, democratization and accountability which needs to be addressed through corrective measures. iv. The correlation (r) value at 1 per cent probability among all stakeholders reveals that stakeholders have uniform opinion with respect to forest

6 governance. In other words, there are no significant differences in stakeholders perception as far as forest governance is concerned. Impact of Different JFM Models/Schemes One of the most significant impacts of the JFM programme has been the change in attitude of forest department officials and their day-to-day relationship with local communities. JFM has also strengthened the cohesiveness in the community and in the village. In this respect the contribution of all JFM models is considerable but the achievement under UJFM is on a higher side. The reasons may be attributed to equitable distribution of costs and benefits of JFM among different sub-groups (class, caste, gender etc.). The relationship with neighboring villages was observed to be less encouraging. it is in fact a major concern in all the models mainly due to boundary conflict and absence of institutional arrangement to resolve intra village disputes for forest produce. Collective efforts to control illicit grazing, felling and encroachment are most encouraging in OFSDP. Collective action of the community for non-destructive harvest of NTFP is most encouraging in UJFM followed by OFSDP, FDA and RLTAP, because of the better composition of social laws and norms. Participation of women in meetings has increased in majority of the villages of OFSDP (75%), UJFM (75%) and FDA (68%) whereas it was just 50 per cent in RLTAP. But the participation of women in decision making process was dismal in all the models, except to a limited extent in UJFM. Participation of SC/ST community in meetings and decision making was found to be most encouraging in all models. Participation in meeting in descending order was observed for OFSDP, RLTAP, FDA and UJFM models whereas participation of SC/ST in decision making was found to be in order of OFSDP, RLTAP, UJFM and FDA models respectively. The Empowerment Index for women (EI) shows OFSDP and UJFM to be much stronger as compared to RLTAP and FDA. Empowerment of SC/ST was found to be very strong in OFSDP and RLTAP Models as compared to FDA and UJFM models. Benefit from forest in term of NTFP was more or less equally distributed among all the sections of the society in UJFM and RLTAP in comparison to FDA and OFSDP.

7 Maximum benefits flow to SC/ST and OBC community was in OFSDP supported villages followed by RLTAP, FDA and UJFM. Equal distribution of benefit leads to increasing private costs of the disadvantaged groups which is inflicted to them for public benefits. This was observed in majority of the UJFM villages during the field work. Impact of JFM Models/Schemes in Village Economy RLTAP Scheme offered highest level of forest work employment (74 man-days) of the beneficiary households in comparison to other JFM Models/Schemes. This was followed by OFSDP (64 man-days), FDA (59 man-days) and UJFM (53 man-days) after the formation of VSS/JFMC as the case may be. A similar analysis of female workforce of the beneficiary households revealed that OFSDP Model/Scheme offered highest level of forest work employment (52 mandays) followed by RLTAP (48 man-days), FDA (44 man-days) and UJFM (38 mandays) respectively. Before-after comparison of level of employment generated from NTFP collection in terms of average man-days in case of male beneficiary of households revealed that FDA Scheme has generated an increase of highest level of employment (2 man-days per household) that works out as an increase of 17 per cent, as compared to other JFM Models/Schemes. Analysis of employment generation from NTFP collection under different JFM Models/Schemes depicted a different trend. In case of the male beneficiary of the households OFSDP offered highest level of employment (15 man-days) as compared to other JFM Models/Schemes. In RLTAP, the average income of the sample beneficiaries from forest realized a higher income (Rs ) followed by OSFDP (Rs ), FDA (Rs ) and UJFM (Rs ) respectively. Whereas, a similar comparison in terms of change in income from forest activities depicted a different picture altogether. Thus, in terms of percentage, the change in average income from forest is noticed highest in case of OFSDP (14.89%), followed by FDA (14.56%), RLTAP (14.41%) and UJFM (13.77%) respectively. Beneficiary households of OFSDP scheme realized highest income (Rs ), followed by UJFM (Rs ), FDA scheme (Rs ) and RLTAP (Rs ) respectively. Whereas, a similar comparison in terms of change in income from agriculture and allied activities, the trend was found as OFSDP (15.6%), followed by RLTAP (11.76%), FDA (11.51%) and UJFM (7.54%) respectively.

8 A perusal of the data presented in the table clearly showed that the beneficiary households of OFSDP (Rs ) had an edge over other models in respect of average income earned from salary and wage. But comparison in terms of change in average income from salaries and wage earnings revealed that FDA (17.59%) had an edge over other schemes. The change in other three models/schemes was found as per cent in case of OFSDP, 8.68 per cent in case of UJFM and 6.92 per cent in case of RLTAP respectively. Further, an analysis of average income from petty business revealed that UJFM had an edge over others indicating highest percentage of change (16.99%), followed by RLTAP (12.68%), OFSDP (12.06%) and FDA (8.85%) respectively. But, comparison amongst the models in terms of absolute average income, the beneficiary households of UJFM realized highest income (Rs ), followed by OFSDP (Rs ), FDA (Rs ) and RLTAP (Rs ) respectively. In nutshell, the percentage of change in income from all sources revealed that the beneficiary households of OFSDP Model/Scheme realized highest change in income (14.75%) in comparing data collected through before-after formation of VSS, followed by FDA (13.53%), RLTAP (12.02%) and UJFM (10.72%) respectively. The per capita income of the beneficiary households after formation of VSS under FDA (Rs ) was found to be the highest, followed by OFSDP (Rs ), RLTAP (Rs ) and UJFM (Rs ) respectively. Impact of JFM Models/ Schemes on Livelihood Food scarcity was found to be more acute for the disadvantaged groups (very poor and poor) in the JFM villages. Before VSS intervention, households coming under very poor category had food scarcity for seven months in OFSDP and UJFM villages whereas it was for eight months in RLTAP and FDA villages. The period varied from April to October/November for the community, irrespective of the models/schemes. After introduction of JFM, food insecurity has decreased by one month (November) each for very poor, poor and manageable in RLTAP and FDA. Though food security has increased in OFSDP and UJFM villages but most vulnerable groups (very poor) are deprived of realizing the advantage, as the poor and manageable have already reaped the advantage. In nutshell, the study revealed that majority of poorest of the poor are still placed at the bottom of the pyramid even after the intervention and there has been no upward mobilization.

9 Wage earning showed upward occupational mobility in RLTAP compared to OFSDP, FDA and UJFM. Agricultural Dependency showed highest downward occupational mobility in OFSDP supported villages compared to other models whereas UJFM showed a positive occupational mobility. Petty business and service became a trusted occupation in FDA, RLTAP and OFSDP, excepting UJFM supported villages. Dependency on NTFP has been reduced to negligible in FDA and RLTAP models whereas it was marginal in OFSDP but significant in UJFM model. Significant achievement was noticed in animal husbandry activities only in UJFM supported villages. Occupational Diversification had less influence in livelihood of the community in FDA, RLTAP and OFSDP. But it was found to be considerable in UJFM. Thus, Livelihood condition of FDA, RLTAP and OFSDP supported villages was relatively at risk as compared to UJFM. Per household NTFP collection was found to be highest in UJFM villages (39 Kg) followed by RLTAP (38 Kg), OFSDP (37 Kg) and FDA (34 Kg). Per household NTFP collection increased from 39 kgs to 45 kgs in UJFM, from 38 kgs to 46 kgs in RLTAP, from 37 kgs to 41 kgs in OFSDP and from 34 kgs to 42 kgs in FDA villages. OFSDP was found to be most effective with respect to EPA-Livelihood linkages. 75 per cent of VSS supported under OFSDP had linked the EPA with livelihood as against 25 per cent in RLTAP, 25 per cent in FDA and 50 per cent of UJFM. IGA component through SHG in case of OFSDP was also found to be very effective and well accepted by the community which was absent in other models. The migration from villages has reduced to the maximum extent in case of RLTAP (12.50%), followed by UJFM (6.25%), OFSDP (4.69%) and FDA (3.13%) respectively. Impact of JFM Models/Schemes on Ecology UJFM had the highest number of tree species (52) and shrubs (8) compared to other JFM models/schemes. Herb species was found to be highest in RLTAP (24). Tree species was found to be 62 per cent in UJFM as against 59 per cent in FDA, 54 per cent in OFSDP and 50 per cent in RLTAP. Herbs abundance was found to be highest in RLTAP (36%) whereas highest shrubs abundances (12%) found in FDA. Population of large tree (> 25 cms GBH) in the village forest areas of UJFM was found to be the maximum i.e. 33 per cent, followed by OFSDP (24%), FDA (22%) and

10 RLTAP (21%) respectively, but population of tree species less than 25 cms GBH was found to be the maximum in case of OFSDP (27%), followed by UJFM (26%), FDA (23%) and RLTAP (21%) respectively. UJFM supported forests were found to have highest basal area (118 m 2 /ha), probably because of the larger number of stems in the higher Girth class. Whereas the basal area of forests supported by RLTAP was found to be the least (66 m 2 /ha). Mean Basal Area (MBA) of tree species varied significantly between four models (ANOVA#, F, 3, 559 = 5.35, p < 0.01). The measured value of MBA of tree species is higher for OFSDP model compared to other three models. The range of variation though found more for tree species in case of RLTAP. Mean GBH of tree species varied significantly between four models (ANOVA, F, 3, 557 = 5.63, p < 0.01). The measured value of MBA of tree species is higher for OFSDP model compared to other three models. The variation of GBH is found more for tree species of RLTAP model. The maximum number tree species were found in the FDA model as compared to other models. Species diversity as a function of richness was considerably high in FDA model whereas UJFM model showed more homogenous tree community structure and sign of early successional stage. The general trend of dataset showed that disturbance should have strong effect on species diversity, and species diversity-disturbance relation was favoured at intermediate level of RLTAP model. Overall Impact The analysis shows most encouraging impact with a total score of 44 for OFSDP. This was followed by UJFM score of 42, FDA score of 27 and RLTAP score of 21 respectively. Challenges and Road Blocks of JFM JFM has no legal backing, though it is governed by state resolutions. While the JFM resolution provides for a share in the timber harvest, there is no provision for sharing of the benefits from the nationalized NTFPs. The Forest Right Act, 2006 has no clue as to how JFMCs will integrate in its implementation. JFMC s are uncertain how the implementation of this Act may affect the resources, they had conserved so far. Micro Plans of OFSDP mentioned the nature of working circle as specified under Working Plan but such information is not available in the micro plan prepared for VSS in other models i.e. FDA, RLTAP and UJFM.

11 Though the micro plans were developed keeping in view the problems of the village but priority sectors identified by Gram Panchayat were missing from them. Such cases were identified in Deogarh and Rayagada forest division while interacting with PRI members. Moreover, the state is supposed to form a SFDA, a federation of all FDAs which is not in place so far. At the village level the communities have their own organizational structure such as; committee for NTFP collectors, committee for pastoralists and other interest groups (ST and labourer) reflecting the ground reality of the area but that flexibility is restricted in JFM due to pre-defined structure under guidelines. Forest Departments have got special powers to dissolve the FPCs as specified under section 9 of JFM Resolution, Provisions made under different models vary significantly. Allotment of EPA varies model wise and component wise. It is based of (@ Rs.4000/ha in 1567/ha in OFSDP 2132/ha for teak and NTFP 981/ha for ANR in RLTAP where as it 1250/ha. in UJFM. Moreover, allotment is based on area allotted to. Thus, VSS having less population and more land have benefited more under development activities compared to the VSS having more population but less assigned area. Convergence with PRIs, CBOs and other development agency is welcome for successful implementation of JFM programme. But due to lack of co-ordination and improper communication, it is not yielding into a good rate of success. The VSS is entitled to 50 per cent share of the sale price after deduction of proportionate harvesting cost as stated under 11 (i) (d) of JFM Resolution, The benefit is calculated from net income from harvesting of commercial timbers and bamboo and not from the grass income. Voice of disadvantaged groups is not taken care of due to emergence of Neo-user group who are less dependent on forest but more involved in resources management due to inclusive provision of all households in GB. The powerful and educated community utilized the Game of Rules at the VSS level. To ensure SMC, measures have to be taken before plantation as mentioned in Micro Plan but in reality, SMC works were taken in the month of October and November where as Plantations activities were done in month of July. Secondly, it was observed during forest transect that the maintenance of SMC works were of poor quality in majority of the JFM Villages.

12 To cover more degraded land, JFM becomes a target for the forest staff at the cost of quality of treatment; growth and regeneration is not up to expected level. JFM has to be a process rather than a target oriented scheme. People chose species for plantation such as fruit bearing trees like mango, cashew nut, jack fruits and teak for economic benefits, but according to villagers, the FD has developed a chart of species for plantation that restricted the choice of people. There is a misunderstanding partly because of lack of communication between FD staff and VSS regarding their approach and point of view. While disbursing loan to SHGs, effective business plan has not been assessed properly. Secondly, the repayment period was only for three month. As a result, few SHGs (Jerenga-Budhipahada and Maudiguda) incurred loss in the business started by them and resorted to distress sale of produce to return the loan amount to VSS. Recommendations JFM resolution, 2008 clause 2 (iv) stipulates that only degraded land which has less than 40 per cent crown density is brought under JFM. However, there are Sq. Kms (58.28%) forest areas which have more than 40 per cent crown density that requires parallel attention as estimated lakhs poor or marginal farmers mostly belonging to Scheduled Caste and Scheduled Tribe communities, depend critically on NTFPs for their livelihood in these areas (Vasundhara, 2010). A committee constituting DFO, ACF, concerned RO, Forester and DLC decide normally the extent of areas that may be assigned to JFMC based on crown density. In addition to this, local topography, land degradation, status of soil moisture, forest dependency, area of influence of the village and other biotic pressure are also equally important for site selection and these aspects must be given due weightage. Thus, the study suggests a voice for local community in the selection process as they are well acquainted with the local conditions. The policy is silent about the interest of different user groups and their representation in EC. Adequate attention is required at policy level to encourage their participation in JFMC. In this context, eight members as suggested in the policy should be elected in such a way that it must ensure the minimum representation of landless, artisan marginalized and forest dependent communities (real resource users) in the EC. Different households have different

13 interests in various kinds of forest produce that meets the needs of different strata of people with varied interest, local knowledge and special skill for specified product. There is a provision of sharing benefits from final harvesting of timber between the FD and the community. This raises a lot of apprehensions and confusions with respect to possible changes in the initial arrangements in future. The term proportionate cost of harvest with maximum ceiling needs to be spelt out clearly and communicated to VSS which will create confidence of the community. The logical objective framework as suggested in revised NAP Guideline, 2009, Micro Plan and VSS Formation and Management guidelines need to be replicated in other models. For identified problems Micro Plan should use Priority Ranking Method (PRM) for arranging local problems based on their importance and intensity. SWOT Analysis of JFM Models Forest Development Agency (FDA) Well designed proforma for preparation of location specific micro-plan should be followed to avoid escape of important items. Both Village Development and Forest development should be given due priority in Micro Plan and as far as possible supplement each other. Funds for micro planning and capacity building should come from a separate capacity building fund, preferably one year prior to sanction of the FDA project. Micro Plan needs to be incorporated into working plan. The delay in funds disbursement has hampered effective implementation including advance planning of the schemes. SFDA can play a major role for regular and smooth flow of fund. Electronic transfer of funds is suggested. There should be some arrangement of revolving fund. There is a greater need for robust and effective implementation strategy which will ensure realization of desired objectives. It was observed during the field survey that majority of the VFCs had suffered because of poor implementation strategy and inadequate monitoring and feedback arrangement. There is a need for convergence with development plans of other line departments at appropriate level to reap mutual benefit. This has also been suggested in Revised Operational Guidelines of NAP, Involvement of women by and large is encouraging in the FDA programme. But more efforts are required to involve women in decision making, particularly those who

14 are real users of forest products. Women bear the burden of fetching forest produce for survival and sustenance of their household. Mechanism for their active participation and involvement is suggested. A more systematic study for selection of project area is required. While locating the project area, due importance may be given to the likely peoples participation. Better response area may be given priority. The improved family earning has facilitated individual initiatives in taking up small investment activities in farm and non-farm sectors. Orissa Forestry Sector Development Project (OFSDP) To develop VSS building as a Community Resource Center, publication and information materials of different agencies should be kept in the same building. Different types of forms can also be kept in the VSS building to supplement service to the villagers against their requirement. Causality replacements in NTFP patches are required as survival percentage of NTFP is around 50 per cent to 55 per cent in most of the VSS. Keeping in view the livelihood need of the community, more areas under NTFP plantation may be considered. Inter-cropping of suitable grasses/herbs is also suggested in the NTFP plantation areas. The Forest Department should expose the VSS about silviculture of different species, their requirement with respect to soil, sunlight, competition among the species and about the flow of produce under different treatment. VSS should be asked to select among the available various alternative in various situations. To develop a squad of effective change agent, leadership and motivational training is required for village youth. Prepayment period may be extended and it should be in consonance with the business plan. Instead of taking loan in one installment and repaying in one installment; SHG should be allowed to repay on installment basis (Preferably on monthly basis) keeping in view the loan volume. Livestock development schemes ought to be developed keeping in view the livestock population of the villages. Special focus has to be given to dairy development. At the initial stage, goat rearing plan should not be taken up. Linkages can be established with Panchayat Planning for a better integrated village development plan. In this regard, PRI members can be briefed about the JFM activities and objectives of the OFSDP. Micro Plan should be shared with concerned panchayats. Services of NGO should be expanded. NGOs are increasingly getting involved with

15 JFM. They have an important role to play in capacity building, information dissemination, monitoring and evaluation, policy making and as facilitators in the implementation of programme. They have the potential to be a good bridge between various department and VSS. The amount earmarked for EPA is at a flat rate of per hectare. At times this leads to conflict in the villages with small forest areas/small plantation. It is recommended that EPA should be taken up as per the approved micro plan. The project should explore funds from other sources like DRDA, employment guarantee schemes etc. to meet infrastructural requirement of the village. Refinement, promotion and infusion of Indigenous Technical Knowledge (ITK) into the treatment plan should be encouraged. Revised Long Term Action Plan (RLTAP) Micro Planning should be done with the active participation of villagers. Keeping in view the changing socio-economic scenario, it should be prepared for 5 years only. Micro Planning of OFSDP should refer for structural framework. The Micro Plan should adhere to the JFM Resolution, The area under NTFP and indigenous mixed fuel wood plantations needs to be extended. At least 50 per cent of the new plantations should be under NTFP. The focus of landscape management should be in diverse species that provide a variety of forest produce throughout the year. The VSS must be given opportunity to have full control over expenditure. The mechanism of handling funds can be made more transparent with inclusion of VSS. EPA funds should be allowed for income generating activities. To make the programme further effective, the JFM guidelines of Govt. of India should be strictly adhered to. VSS should encourage the existing SHG and promote it for alternative livelihood to reduce the dependency on forest. Gram Panchayat must be strengthened to facilitate the process of natural resource management. VSS should facilitate the process of PESA at Gram Sabha level in Koraput and Rayagada Forest Divisions as both divisions come under Scheduled V area in both the divisions. Mining activities should be restricted in JFM areas. Universalisation of JFM (UJFM) Areas under CFM groups should be brought under JFM fold to promote scientific silvicultural management of resources under a unified integrated approach towards JFM.

16 Community resource management practices be refined and promoted to gain the confidence of the community. Additional incentive plan is required to recognize the community efforts. Small forest patches (but not less than 0.5 ha) be brought under block plantation for soil, water and vegetation conservation. The selection of area for block plantation should be in accordance with the new revised Guidelines of National Afforestation Programme, To ensure participation bottom to top approach is suggested for UJFM areas. Women participation in decision making can be encouraged through promotion of WSHGs and motivational training. Use of video can be explored for capacity building and for more active participation. Community development is equally important along with forestry. To bring parallel development, convergence with programme of other line Department at divisional and state level is recommended. Efforts of forest department at state level can ensure such steps. Concluding Remarks No doubt, the process of empowerment is a difficult and time consuming task, but sustained effort is required to recognize Peoples Institutions (PIs) with an optimistic approach towards JFM for making it more people-centric. The study has observed that empowerment of the user group, Peoples Institutions, greater devolution of power, functionaries and funds, active participation of the stakeholders, due weightage to entitlements of the community etc. are likely to benefit the most poor forest-dependent community. To conclude, although OFSDP model has certain limitations, yet it was found to be an improved and advanced model amongst the four models under comparison. However, it must be put on records that the current study of models has not been very exhaustive due to time limitations and is restricted to limited sample analysis. Further different schemes have different primary objectives yet they have a common objective of sustainable forest management through JFM. But what is to be understood and grasped is that there is always a trade off between the different objectives. The real challenge of JFM is to clarify to the communities about the available different alternative plans of management and their flow of goods and services both in time and space.

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