Mechanisms to Operationalize Policies

0641-C1

Ajith Chandran^[1]

Abstract

This paper is based on an initiative by Aga Khan Foundation (AKF) in India to operationalize policies. On 1 June 1990, the Ministry of Environment and Forest in India issued guidelines to involve village communities and voluntary agencies in the protection, development and management of forests, called the Joint Forest Management (JFM). In response to difficulties faced by non-government organizations (NGOs) in initiating JFM, the Foundation in 1998 conducted a study of the JFM situation in western India. The study highlighted that in spite of enabling policies and guidelines on JFM, bottlenecks existed in their implementation. The study recommended that along with required changes in the existing policy, systems and mechanisms needed to be institutionalized to ensure that existing policies are effectively operationalized.

As a follow-up to the study, AKF initiated discussions with the Gujarat Forest Department to explore possible areas of collaboration and address some of these issues. In 1999 "JFM Cell", a first of its kind in the country, was established under the leadership of a retired forest officer. The key objective of the Cell was to expand and strengthen JFM activities in the state. The Cell focused on streamlining the functioning of Divisional Level Working Groups (DLWGs), networking with the forest department, NGOs and other stakeholders, monitoring, documentation and sharing information through a vernacular newsletter, conducting feasibility and research studies to facilitate the expansion of JFM to new villages, conducting training and outreach services to sensitize and bring together the forest department and villagers on JFM activities.

In a short span of three years, the Cell has made its presence felt not only at the state level but also at the national level. At the implementation level, the DLWG meetings increased in frequency and are constantly monitored by the state Forest Department and the Cell. Through its campaigns, newsletters, exhibitions and training, it is estimated to have reached over 1500 villages and 87,000 individuals at the grassroots level. The number of JFM villages in Gujarat has increased from 700 in 1999 to over 1340 in 2002.

Introduction

In a study of the JFM situation in four Western Indian states conducted by Aga Khan Foundation in 1998^[2] it was found that despite existing and enabling policies, there were numerous bottlenecks when it came to implementation. The required permissions and support was often lacking, leading to slow and inadequate institutionalisation of the policy at the operational level. The study suggested that for better effectiveness and operationalisation of policy, along with required policy changes, mechanisms that are appropriate required to be developed. The result of the scan was shared with key organisations and individuals involved with JFM in the country that included the Forest Department.

The Forest Department of Gujarat while agreeing to the need for improvement in operational aspects was also concerned with the slow pace of progress of JFM in the State and was looking for a strategic initiative. Many issues like slow progress in the preparation of Working Schemes^[3], lack of assessment of training requirements in the changed scenario of JFM were discussed in the State Level Working Group^[4] (SLWG) meetings in Gujarat. There also arose a need to get a fresh understanding of the processes that were required, examine the approaches and synthesise the learning to sustain the program. In this context the creation of a nodal agency to co-ordinate the activities of JFM in the state was strongly felt.

The State Level Working Group of Gujarat had periodically deliberated upon and had already identified some areas that were of immediate/high concern. Discussions were initiated by the Foundation with senior Forest Department officials for addressing the contemporary problem and for creating a mechanism that could address this.

The Cell has been established to work independently, with the support of Aga Khan Foundation (India), State Forest Department and the Gujarat Ecological Education and Research (GEER) Foundation. Functioning throughout the year the focus of the Cell is to co-ordinate and assist in qualitative improvement and expansion of JFM in the state. In effect the JFM Cell envisages improved JFM coverage both in quality and extent with strengthening of systems, processes and procedures. It also looks to develop appropriate approaches, procedures and strategies that are people oriented. Its strategy is to be proactive both at the operational and policy level.

Discussion

Prior to the collaboration with the Forest Department and subsequent formation of the JFM Cell, the issues that were being raised were based on the study conducted by AKF. Specifically, the need for a concerted effort at the Divisional level of the Forest Department. Situational analysis done by the study is summed up in the following key points:

• Despite forums existing at different levels for addressing the issues emerging in JFM, at the operational level, the various stakeholders have to content with individual and sporadic interactions. Incidentally, it is at the Divisional level that most of the stakeholders require to be in continuous liaison with the Forest Department. With villages in different ages of JFM and many villages ready for sharing the benefits of JFM, time bound decisions at the Divisional level acquire significance. Lack of closer and regular interactions at the Divisional Level hamper speedier decision-making.

• The involvement of Forest Department at various levels and networks has remained low. Despite substantial number of JFM villages being facilitated directly by the Forest Department, the focus has been on the on the good practices of the NGOs with minimal focus on the working and success of the Forest Department.

• DFO is responsible for the effective implementation of the existing Government Resolutions. Therefore, even if policy guidelines and resolution exist at state level, permission is obtained at the divisional level.

• No regular forum exists for addressing difficulties arising at the Divisional Level. Also no regular forum exists for exchange of information and for clarifying policy issues.

• DFO forms a link between the state level working groups and the community. It is the DFO who has to translate and initiate the policy decisions to actual field level practices. Sustainable community participation requires initiative by the DFO as the staff under him/her respond to the importance the DFO gives to specific issues. In this respect, training to forest officers initiated by DFOs, have helped in better understanding of social and management aspects of JFM.

Need for a Divisional Level Working Group

As Divisional Forest Officer is the person responsible for giving permission for various activities related to forests, a DLWG forum would be useful for sorting out issues related to permission. Such meetings at the Divisional Level would be able to highlight not only good and successful practices which can be replicated elsewhere but also difficulties and obstacles faced by the Range Forest Officer, NGOs, and community based organisations (CBOs). Conflicts related to boundaries and usergroups may need research to get a clearer understanding. It will be possible for the DLWG to identify and conduct research on these areas which will need additional information for a decision to be made.

Formation of JFM Cell

The JFM Cell - Gujarat was formed in 1999 as a collaboration and support of Aga Khan Foundation, State Forest Department and Gujarat Ecological Education and Research Foundation. GEER Foundation is fully aided by the state government with the Chief Minister as ex-officio Chairman and Forest Minister as ex-officio secretary of the Foundation. A launching workshop was organised in June 1999 with all sections of the stakeholders and the goal, objectives, activities and a tentative workplan was shared and discussed with them.

Results

In a very short period the Cell has made an impact at the state and also the national level. Its various activities is estimated to have reached over 1,500 villages and over 10,00,000 individuals. Major impacts of the programme have resulted in the following:

• DLWG meetings has become one of the effective mechanisms for operationalising JFM policies. The Cell in collaboration with the Forest Department has proactively encouraged Divisions to conduct such meeting and has facilitated number of discussions between stakeholders on the functioning of DLWGs. Since 2000, there has been a multifold increase in the number of DLWG meetings being held.

• The Cell's "Horizontal Communication" training module, which facilitates sharing of experience amoung villagers, along with the use of local songs and drama, was used to train villagers and forest department staff in 50 villages of North Gujarat as a pilot project. The training was so well received that the Forest Department has is looking forward for similar training in other areas as well.

• The Cell initiated a series of participatory appraisal and training exercises involving the community and the Forest Department in about 30 villages of Posina Taluka, one of the poorest Blocks in Gujarat. The exercise helped in bringing the villagers and the Forest Department closer, with better understanding of villager's needs. The planning exercise has further helped the local authorities in getting development funds.

• Cartographic overlaps prepared by the JFM Cell highlighting JFM villages as well as villages with JFM potential, helped the Divisional Forest Officers to expand JFM programmes. Further such maps are being prepared to develop a feasibility planning

• A bimonthly Gujarati newsletter has become a platform for sharing information on JFM. Villagers and others are now able to request for information on JFM and share their problems and concerns on a public platform.

• The Forest Department is increasingly demanding trainings conducted by the JFM Cell for its personnel to improve relationships between the department and the community and to prepare participatory Working Schemes at the Divisional level.

• In recognition of its nodal role in facilitating JFM the Cell has been made a member of State Level Working Group, and is involved in discussions related to JFM in the state. At the national level the Cell was invited by the Ministry of Environment and Forests for its Committees on JFM.

• Very recently, in 2002, looking at the success in being able to address issues of JFM, the Cell has broadened its activities to other overlapping areas in natural resource management as well.

Lessons Learnt

• The approach of the Cell, emphasising training, communication and research with support for establishing mechanism and developing procedures has quickly helped in improving the JFM situation

• A full time unit with the sole mandate of JFM has given an impetus to JFM. The Cell has become a forum to share JFM concerns and knowledge at the state level

• Being an independent organisation having close links with the Forest Department, the Cell has greater flexibility to interact with all JFM stakeholders while maintaining official credibility.

• Having a senior ex forest department person recognised for his pioneering efforts in JFM in the state to head the Cell, has helped in establishing quick rapport in the initial phase with different stakeholders

• The newsletter in local language has proved to be a simple, cost effective tool to disseminate information on JFM. It updates stakeholders on JFM activities in the state and provides a platform for sharing JFM concerns and problems

Conclusion

Countries similar to India, where there is a high dependency of local population on forest need to recognise the need for interlinking and bridging vastly differing institutions like the Forest Department and the community organisations. Without appropriate and community friendly mechanisms to ensure a closer link policies remain on paper. On a misconception that the policy did not work, further changes in policy is sought whereas the underlying malady is with the institutional framework. Developing appropriate mechanisms would ensure at least an effort in proper operationalisation of policies.

Bibliography

Chandran A. and V. Pastala 1998. Divisional Level Working Groups: A strategy for Improving JFM Effectiveness, New Delhi. 7-9

Aga Khan Foundation, 2001. Activating a Policy, New Delhi. Enriching Experiences 1(8): 1-2

JFM Cell, 2002. Proceedings of Workshop, Gandhinagar. Annex V