THE NATIONAL FOREST POLICY

The Government of India presented in parliament in December 1988 the -.National Forest, Policy, 1988. We give, below the Misters, speech in parliament on this occasion, followed by the full text of the new policy.

"The issue of revision of the Forest Policy formulated in 1952 has been under the 'active. consideration of the Government for some time. In view of the social,. economic and ecological importance of forests. considerable thought has to be given to the multifarious implication of, the Forest Policy. Although the 1952 Forest, Policy, aimed at forest coverage of one-third of the total land area of the country due to Various constraints this could not be attained. Rather extensive diversion of forest land has taken place for non-forest use. The genetic diversity has also been considerably affected by the destruction of flora and fauna. The Government have increasingly realized the great importance of forests in contributing to the ecological stability of the country. This has necessitated. a re-examination of the Forest Policy and giving emphasis to the conservation and ecological aspects.

The salient feature of, the new Forest Policy are,:

1. Maintenance of environmental stability through preservation and restoration of ecological balance.

2. Conservation of the natural heritage of the country by preserving the remaining natural forests and protecting the vast genetic resources for the benefit of the posterity.

3. Meeting the basic needs of the people, especially fuelwood, fodder and small timber for the rural and the tribal people.

4. Maintaining the intrinsic relationship between forests and the tribal and other poor people living in and around forests by protecting their customary rights and concession on the forests.

The main approach outlines is as follows:

1. Existing forest land ind forests will be fully protected and their productivity will be improved. Emphasis will be given to enhance forest cover on hill sloped and catchment areas of rivers.

2. In order to conserve. biological diversity, a, network of sanctuaries. National parks, biosphere reserves and other protected areas will be extended and better managed.

3. The people will be actively involved in programmes of protection, conservation and management of the forests.

We believe that the new Forest Policy will be able to achieve nature conservation and ecological balance at the same time meeting the essential requirements of the people".

TEXT OF THE RESOLUTION ON NATIONAL FOREST POLICY, 1988

1. PREAMBLE

In Resolution No'."13Y52-F, dated the, 12th May 1952,the Government of India in the erstwhile Ministry of Food and Agriculture enunciated a Forest Policy to be followed in the management of sate Forests in the country. However, over the years, forests in the country have suffered serious depletion. This is a attributed to relentless pressures arising from ever - increasing demand for fulewood, fodder and timber, inadequacy of protection measures; diversion of forest lands to non-forest uses without ensuring compensatory afforestation and essential environmental safeguards; and the tendency to look upon forests as revenue earning resource The need to review the situation and to evolve, for the future, a new strategy of forest conservation has become imperative. Conservation includes preservation, maintenance, sustainable utilisation, restoration, and enhancement of the natural environment. It has thus become necessary to review and revise the National Forest Policy.

2. BASIC OBJECTIVES

2.1. The b sic objectives that should govern the National Forest Policy are the following:-

Maintenance of environmental stability through preservation and, where necessary, restoration of the ecological balance that has been adversely disturbed by serious depletion of the forests of the country.

Conserving the natural heritage of the country by preserving the 'remaining natural forests with the vast variety of flora and fauna, which represent the remarkable biological diversity and genetic resource of the country.

Checking; soil erosion and denudation in the catchment areas of rivers, lakes, reservoirs in the interest of soil and water conservation, for mitigating floods and droughts and for the retardation of siltation of reservoirs.

Checking the extension of sand-dunes in the desert areas of Rajasthan and along the coastal tracts.

Increasing substantially the forest/tree cover in the country through massive afforestation and forestry programmes, especially on all denuded, degraded and unproductive lands.

Meeting the requirements of fuelwood, fodder, minor forest produce and small timber of the rural and tribal populations.

* Increasing the productivity of forests to meet essential national needs.

* Encouraging efficient utilization of forest Produce and maximising substitution of wood.

* Creating a massive people's movement with the involvement of women, for achieving these objectives and to minimise pressure on existing forests.

2.2. The principal aim of Forest Policy must be to ensure environmental stability and maintenance of ecological balance including atmospheric equilibrium which are vital for sustenance of all life forms, human, animal and plant. The derivation of direct economic benefit must be subordinated to this principal aim.

3. ESSENTIALS OF FOREST MANAGEMENT

3.1. Existing forests and forest lands should be fully protected and their productivity improved. Forest and vegetable cover should be increased rapidly on hill slopes, in catchment areas of rivers, lakes and reservoirs, and ocean shores and on serni-arid,arid and desert tracts.

3.2. Diversion of good and productive agricultural lands to forestry should be discouraged in view of the need for increased food production.

3.3. For the conservation of total biological diversity, the network of national parks, sanctuaries, biosphere reserves and other protected areas should be strengthened and extended adequately.

3.4. Provision of sufficient fodder, fuel and pasture, specially in areas adjoining forest, is necessary in order to prevent depletion of forests beyond the sustainable limit. Since fuelwood continues to be the predominant source of energv in rural areas, the programme of afforestation should be intensified with special emphasis on augmenting fuelwood production to meet the requirement of the rural people.

3.5. Minor forest produce provides sustenance to tribal' population and to other communities residing in and around the forests. Such produce should be protected, improved and their production enhanced with due regard to generation of employment and income.

4. STRATEGY

4.1. Area Under Forest:

The national goal be to have a minimum of one-third of the total land of the country under forest or tree cover. In the hills and in mountainous regions, the aim should be to maintain two-third of the area under such cover in order to prevent erosion and land degradation and to ensure the stability of the fragile eco- system.

4.2 Afforestation, Social Forestry & Farm Forestry:

4.2.1. A massive need-based and time bound programme of afforestation and tree planting, with particular emphasis on fuelwood and fodder development, on all degraded and denuded lands in the country, whether forest or non-forest land, is a national imperative.

4.2.2. It is necessary to encourage the planting of trees alongside of roads, railway lines, rivers and streams and canals, and on other unutilised lands under state/corporate, institutional or private ownership. Green belts should be raised in urban/industrial areas as well as in and tracts. Such a programme will help to check erosion and desertification as well as improve the micro-climate.

4.2.3. Village and community lands, including those on foreshores and environs of tanks, not required for other productive uses, should be taken up for the development of tree crops and fodder resources. Technical assistance and other inputs necessary for initiating such programmes should be provided by the Government. The revenues generated through such pogrammes should belong to the panchayats where the lands are vested in them: in all other cases, such revenue,; should be shared with the local communities in order to provide an incentive to them. The vesting, in individuals, particularly from the weaker sections (such as landless labour, small and marginal farmers, scheduled castes, tribals, women) of certain ownership rights over trees, could be considered, subject to appropriate regulations: beneficiaries would be entitled to usufructs and would in turn be responsible for their security and maintenance.

4.2.4 Land laws should be so modified wherever necessary so as to facilitate and motivate individuals and institutions to undertake tree-farming and grow fodder plants, grasses and legumes on their own land. Wherever possible, degraded lands should be made available for this purpose either on else or on the basis of a tree patta-scheme. Such leasing of the land should be subject to the land grant rules and land ceiling laws. Steps necessary to encourage them to do so must be taken. Appropriate regulations should govern the felling of trees on private holding.

4.3 Management of State Forests

4.3.1 Schemes and projects which interfere with forests that clothe steep slopes, catchments of rivers, lakes, and reservoirs, geologically unstable terrain and such other ecologically sensitive areas should be severely restricted. Tropical rain/moist forests, particularly in areas alike Arunachal Pradesh, Kerala, Andaman and Nicobar Islands, should be totally safeguarded.

4.3.2 No forest should be permitted to be worked without the Government having approved the management plan, which should be in a prescribed format and in keeping with the National Forest Policy. The Central Government should issue necessaryguidelines to the State Government in this regard and monitor compliance.

4.3.3. In order to meet the growing needs for essential goods and services which the forests provide, it is necessary to enhance forest cover and productivity of the forests through the application of scientific and technical inputs. Production forestry programmes, while aiming at enhancing the forest cover in the country, and meeting national needs, should also be oriented to narrowing by the turn of the century, the increasing gap between demand and supply of fuelwood. No such programme, however, should entail clear-felling of adequately stocked natural forests. Nor should exotic species be introduced, through public or private sources unless long-term scientific trails undertaken by specialists in ecology, forestry and agriculture have established that they are suitable and have no adverse impact on native vegetation and environment.

4.3.4. Rights and Concessions

4.3.4.1. The rights and concessions, grazing, should always remain related to the carrying capacity of forests. The capacity itself should be optimised by increased investment, silvicultural research and development of the area. Stall-feeding of cattle should be encouraged. The requirements of the community, which cannot be met by the rights and concessions so determined, should be met by social forestry outside the reserved forests.

4.3.4.2. The holders of customary rights and concessions in forest areas should be motivated to identity themselves with the protection and development of forests from which they derive benefits. The rights and concessions from forests should primary be for the bona fide use of the communities living within and around forest areas, specially the tribals.

4.3.4.3. The life of tribals and other poor living within and near forests revolves around forests. The rights and concessions enjoyed by them should be fully protected. Their domestic requirements of fuelwood, fodder, minor forest produce and construction timber should be the first charge on forest produce. These and substitute located at depots at reasonable prices.

4.3.4.4. Similar consideration should be given to scheduled castes and other poor living near fores~. However, the area, which such consideration should cover, would be determined by the carrying capacity of the forests.

4.3.4.5. Wood is in short supply. The long-term solution for meeting the existing gap lies in increasing the productivity of forests~but to relieve the existing pressure on forests for the demands of railway sleepers, construction industry (particularly in the public sector), furniture and panelling, mine-pit props, paper and paper board etc. Substitution of wood needs to be taken ! recourse to. Similarly; on the front of domestic energy, fuel wood : needs to be substituted al; far as practicable with alternate sources like biogas, LPG and solar energy. Fuel efficient "chulhas" as a measure of conservation of fuel wood need to be popularised in rural areas.

4.4. Diversion of Forest Lands for Non-forest Purpose

4.4.1. Forest land or land with tree cover should not be treated merely as a resoun:e readily available to be utilised for various, . projects and programmes{ but as a national asset which requires . to be properly safeguarded for providing sustained benefits to the entire community. Diversion of forest land for any non-forest purpose should be subject to the most careful examination by the specialists from the standpoint of special and environmental costs and benefits. Construction of dams and reservoirs, mining and industrial development and expansion of agriculture should be coJ'Sistent with the needs for conservation of trees and forests. Projects which involve such diversion should at least provide in their investment budget, funds for regeneration/ compensatory afforestation

.4.4.2. Beneficiaries who are allowed mining and quarrying in forest land in land covered by trees should be required to repair and re-vegetate the area in accordance with established forestry practices. No mining lease should be granted to any party, private or public, without a proper mine management plan appraised from the environmental angle and enforced by adequate .machinery.

4.5. Wildlife Conversation :

Forest Management should take special care of the needs of wildlife conservation, and forest management plans should include prescriptions for this-purpose. It is specially essential to provide for "corridors" linking the protected areas in order to maintain genetic continuity wildlife.

4.6. Tribal people and Forests

Having regard to the symbiotic relationship between the tribal people and forests, a primary task of all agencies responsible for forest management, including the forest development corporation should be to associate the tribal people closely in the protection, regeneration and development of forests as well as to provide gainful employment to people living in and around the forest. While safeguarding the customary rights and interests of such people, forestry programmes should pay special attention to I the following:-

• One of the major causes for degradation of forest is illegal cutting and removed by contractors and their labour. In order to put an end to this practice, contractors should be replaced by institutions such as 'tribal cooperatives, labour cooperatives, government corporations, etc. as early as possible.
• Protection, regeneration and optimum collection of minor forest produce along with institutional arrangements for the marketing of such produce;
• Development of forest village on par with revenue villages;
• Family-oriented schemes for improving the status of the tribal beneficiaries; and
• Undertaking integrated area development programmes to meet the needs of the tribal economy in and around the forest areas, including the provision of alternative sources of domestic ene~y on a subsidised basis, to reduce pressure on the forest areas.

4.7. Shifting Cultivation

Shifting cultivation is affecting the environment and productivity of land adversely. Alternative avenucs of income, suitably harmonised with the right land use practices, should be devi$ed to discourage shifting cultivation. Efforts should be made to contain such cultivation within the area already affected, by propagating improved agricultural practices. Area already damaged by such cultivation should be rehabilitated through , social forestry and ene~y plantations.

4.8. Damage to Forests form Encroachments, Fires and Grazing

4.8.1. Encroachment on forest lands has been on the increase. This trend has to be arrested and effective action taken to prevent its continuance. There should be no regularisation of existing encroachments.

4.8.2. The incidence of forest fires in the country is high. Standing trees and fodder are destroyed on a la~e and natural regeneration annihilated by such fires. Special precaution should be taken during the fire season. Improved and modem Imanagement practices should be adopted to deal with forest fires.

4.8.3. Grazing in forest areas should be regulated with the involvement of the community. Special conservation areas, young Iplantation and regeneration areas should be fully protected. Grazing and browsing in forest areas need to be controlled. Adequate grazing fees should be levied to discourage people in forest areas from maintaining large herds of non-essential livestock. .

4.9. Forest-based Industries

The main consideration governing the establishment of forest- based industries and supply of raw material to them should be as follows:

• As far as possible, a forest-based industry should raise the raw material needed for meeting its own requirements, preferably by establishment of a direct relationship between the factory and the individual who can grow the raw material by supporting the individuals with inputs including credit, constant technical advice and finally harvesting and transport services.
• No forest-based enterprise, except that at the village or cottage level, should be permitted in the future unless it has been fi~t cleared after a careful scrutiny with regard to assured availability of raw material. In any case,the fuel fodder and timber requirements of the local population should not be sacrificed for this purpose.
• Forest-based industries must not only provide employment to local people on priority but also involve them fully in raising trees and raw-material.
• Natural forests serve as a gene poll resource and help to maintain ecological balance. Such forests will not, therefore, be made available to industries for undertaking plantation and for any other activities.
• Farmers, particularly small and marginal farmers, would be encouraged to grow, on marginal/degraded lands available with them, wood species ~uired fpr industries, These may also be grown along with fuel and fodder species on community lands not requited for pasture purposes, and by forest departmenUcotporations on degraded forests, not earmarked for natural regeneration.
• The practice .of supply of forest produce to industry at concessional prices should cease. II)dustry should be encouraged to use alternative raw materials. Import of wood and wood products should be liberalised.

The above considerations will, however, be subject to the current policy relating to land ceiling and land-Iaws.

4.10 Forest Extension

Forest conservation programme cannot succeed without the willing support and cooperation of the people. It is essential, therefore, to inculcate in the people, a direct interest in forests, their develqpment and conservation, and to make them conscious of the value of trees, wildlife and nature in general. This can be achieved through the involvement of educational institutions, right from the primary stage. Farmers and interested people should be provided opportunities through institutions like Krishi Vigyan !Kendras, Trainers' Training Centres to learn agri:.silvicultural and silvitultural techniques to ensure optimum use of their land and water resources. Short- term extension courses and lectures should be organised in order to educate fanners. For this purpose, it is essential that suitable programmes are propagated through mass media, audio- visual aids and the extension machinery.

4.11. Forestry Education

Forestry should be recognized both as a scientific discipline as well as a profession. .Agriculture universities and institutions dedicated to the development of forestry education should I formulate curricula and courses for imparting academic education and promoting post-graduate research and professional excellence, keeping ill view the manpower needs of the country. Academic and professional qualification in forestry should be kept in view for recruitment to the Indian Forest Services and the State Forest Service. Specialised and orientation courses for developing better management skills by in service training need to be encouraged, taking into account the latest development in forestry. and related disciplines.

4.12. Forestry Research .

With the increasing recognition of the importance of forests for environmental health, energy and employment, emphasis must be laid on scientific forestry research, necessitating adequate strengthening of the research base as well as new priorities for action. Some broad priority areas of r:esearch and development needing special attention are:

1) Increasing the productivity of wood and. other forest produce per unit of area per unit time by the application of modem scientific and technological methods.

2) Revegetation of barren/ marginal/waste/mined lands and watershed areas.

3) Effective conservation and management of existing forest resources (mainly natural forest ecosystems).

4) Research related to social forestry for development.

5) Development of substitutes to replace wood and wood products.

6) Research related to wildlife and management of national parks and sanctuaries.

4.13. Personal management

Government polices in personnel management for professional forests and forest scientists should aim at enhancing their professional competence and status and attracting and retaining qualified and motivated personnel, keeping in view particularly the arduous nature of duties they have to perform, often in remote and inhospitable places.

4.14. Forest Survey and Data Base

Inadequacy of data regarding forest resources is a mater of concern because this creates a false sense of complacency. priority needs to be accorded to completing the survey of forest resources in the country on scientific lines and to updating information. For this purpose, periodical collection, collation and publication of , reliable data on relevant aspects of forest management needs to be improved with resource to modem technology and equipment.

4.15. Legal Support and Infrastructure Development

Appropriate legislation should be undertaken, supported by adequate infrastructure, at the Centre and State levels in oiuer to implement the policy effectively.

4.16. Financial Support for Forestry .

The objectives of this revised policy cannot be achieved without the investment of financial and other resources on a substantial scale. Such investment is, indeed, fully justified considering the contribution of forests in maintaining essential ecological processes and life-support systems and in preserving genetic diversity. Forest should not be looked upon as a source of revenue. Forests are a renewable natural resource. They are a national asset to be protected and enhanced for the well-being of the people and the nation.