For carbon sequestration, India must revisit its policy framework and reverse fading participation of local communities
India’s pledge to set a
net zero target by 2070, at the COP26 summit, Glasgow, has again highlighted
the importance of forests as an undisputed mechanism to help mitigate the
challenges of climate change. Though, in more specific terms, this was already
highlighted during the United Nations Framework Convention on Climate Change
(UNFCC) framework (2013) of REDD+ for Reducing Emissions from Deforestation and
Forest Degradation, along with the ‘sustainable management of forests for the
conservation and enhancement of forest carbon stocks’. In a study by Griscom
(2017), land-based sinks (natural climate solutions which also include forests)
can provide up to 37% of emission reduction and help in keeping the global
temperature below 2° C. Further, recent research has favoured a natural
regeneration model of restoration over the existing much-hyped mode of tree
planting as such forests are said to secure nearly 32% carbon storage, as per
one report of the Intergovernmental Panel on Climate Change.
Continued
degradation
Though India is said to
have increased its forest cover by 15,000 square kilometres in the last six
years, the degradation of existing forests continues. As per the State of
Forests Report (1989), the country had 2,57,409 sq.km (7.83% of its
geographical area) under the open forest category, having a density of 10% to
less than 40%. However, in 30 years (2019) this has been increased to 3,04,499
sq.km (9.26%). This means every year on average, nearly 1.57 lakh hectare of
forests was degraded. This degradation highlights the presence of anthropogenic
pressures including encroachment, grazing, fire, which our forests are
subjected to. Having diverted nearly 1.5 million hectares of forests since 1980
for developmental activities and losing nearly 1.48 million hectares of forests
to encroachers coupled with an intricate link between poverty and unemployment,
India is witnessing enormous degradation of forests and deforestation. This
warrants the participation of people as an essential and effective route to
achieve the desired target of carbon sequestration through the restoration of
forests.
Terms
of engagement
In a historic departure
from pursuing commercial objectives to supporting the needs of people in a
participatory manner (as envisaged in National Forest Policy, 1988), India made
its attempt, in 1990, to engage local communities in a partnership mode while
protecting and managing forests and restoring wastelands with the concept of
care and share. This concept of joint forest management spelt much hope for
States and forest-fringe communities. Later, the concept of forest development
agencies was introduced to consolidate the efforts in an autonomous model,
which paved the way for fund flow from various other sources to joint forest
management committees. The efforts to make this participatory approach
operative resulted in the formation of nearly 1.18 lakh joint forest management
committees managing over 25 million hectares of forest area. Most of these
became active and operative while implementing various projects financed by
external agencies such as the World Bank, the Overseas Economic Cooperation Fund
(OECF) Japan, the Department for International Development (DFID) United
Kingdom and the European Union (EU). The similar system of joint management in
the case of national parks, sanctuaries and tiger reserves which existed in the
name of eco-development committees initially proved effective as it could
garner the support of these participating communities not only for the
protection and development of biodiversity but also in the considerable
reduction in man-animal conflicts and the protection of forests from fires and
grazing.
However, the completion
of the project period and lack of subsequent funding affected their
functionality and also the protection of forests due to a lack of support from
participating local communities including associated non-governmental
organisations.
Except for the National
Mission for Green India, in all other centrally sponsored programmes such as
Project Tiger, fire management, Integrated Development of Wildlife Habitats
(IDWH) including the Compensatory Afforestation Management and Planning
Authority (CAMPA), the lack of priority and policy support to ensure the
participation of local communities via the institutions of joint forest
management committees slowly made their participation customary. This caused a
gradual decline in their effectiveness.
Changed
role now
The role of local
institutions of gram panchayat or joint forest management committees is now
restricted to be a consultative institution instead of being partners in
planning and implementation. This indifference and alienation from the
participatory planning and implementation of various schemes further affects
the harmony between Forest Departments and communities, endangering the
protection of forests. This is more relevant while taking up restoration
activities including tree planting outside the designated forest areas where
motivation and encouragement of stakeholders (especially panchayats and urban
local bodies) are crucial.
As committed at Glasgow,
India will have to ‘focus much more on climate change and devise strategies and
programmes to achieve the net zero target’. Besides reducing the quantum of
emissions in a phased manner — itself full of challenges — the approaches for
carbon storage and offsetting through natural sinks such as forests need to be
given equal priority.
Replicate
Telangana model
To achieve net zero
targets there is a need to revisit our existing legal and policy mechanisms,
incentivise the local communities appropriately and ensure fund flow for
restoration interventions, duly providing for the adequate participation of
local people in planning and implementation through local institutions.
Political priority and appropriate policy interventions (as done recently in
Telangana by amending the panchayat and municipal acts for environmental
concerns and creating a provision for a Green Fund, or Telangana Haritha Nidhi,
for tree planting and related activities) need replication in other States.
These should be supported by enabling financial and institutional support
mechanisms and negotiations with stakeholders to incentivise local communities
to boost efforts to conserve and develop forest resources. Though India did not
become a signatory of the Glasgow Leaders’ Declaration on Forests and Land Use,
the considerations of land tenure and the forest rights of participatory
communities with accelerated finances will help aid steps in the race toward
net zero. This inclusive approach with political prioritisation will not only
help reduce emissions but also help to conserve and increase ‘our forest cover’
to ‘a third of our total area’. It will also protect our once rich and precious
biological diversity.
This article appeared in the Hindu dated 8th January 2022
https://www.thehindu.com/opinion/op-ed/the-baton-of-forest-restoration-in-the-net-zero-race/article38179497.ece
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