India - Jammu and Kashmir and Haryana Social Forestry Project

Document of The World Bank t f CC FOR OFFICIAL USE ONLY Report No. 3840-IN STAFF APPRAISAL REPORT INDIA JAMMU & KASHMIR AND HARYANA SOCIAL FORESTPv PPOTVt'f July 15, 1982 Agricultural & Education Institutions Division South Asia Projects Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  EXCHANGE RATE US$ 1 = Rupees 8.5 WEIGHTS AND MEASURES Metric system ABBREVIATIONS & ACRONYMS ACF - Assistant Conservator of Forests Addl. CCF - Additional Chief Conservator of Forests 3PB - Block Panchayat Board CCE - Chief Conservator of Forests CF - Conservator of Forests CSSRI - Central Soil Salinity Research Institute DCF - Deputy Conservator of Forests DFO - Divisional Forest Officer DPO - Divisional Publicity Officer ERR - Economic Rate of Return FD - Forestry Department FG - Forest Guard FR - Forest Ranger FRR - Financial Rates of Return EWE - Fuelwood Equivalent GOH - Government of Haryana GOI - Government of India GOJAK - Government of Jamm= and Kashmir ICB - International Competitive Bidding JAK - Jammu and Kashmir JAKFD - Jammu and Kashmir Forest Department LCB - Local Competitive Bidding MEU - Monitoring and Evaluation Unit OCC - Opportunity Cost of Capital PO - Publicity Officer PV - Present Value PW - Present Worth SFW - Social Forestry Wing/Social Forestry Worker SV - Switching Values VFW - Village Forestry Workers  FOR OFFICIAL USE ONLY - INDIA JAMMJ AND KASHMIR AND HARYANA SOCIAL FORESTRY PROJECT Table of Contents Page No. I. INTRODUCTION .................... ,.. .......................... 1 II. BACKGROUNDp Role inthe... Sect.. ................................... 3 A. Forestry in India ................ 3 Sectoral Context ......... ......, 3 Bank Group Role in the Sector, ......................... ,. ............, 4 B. The State of Jamu and Kashmir ... , 999999.*...999*.... .,,, 6 General . . . . . .,. . . . . . . . . . . . . . , . . .,, 6 Panchayat System ............... , , , - 7 a * ** * e * * * * * * * * 7 Present Consumption of Energy.,,,,,.8.,.,,,,,,,,, 8 C. Forestry in Jammn and Kashmir ................. . . . . ...... ., 9 Environmental Conditions and Forest Types ,, ,. 9 Contribution of Forests to the Economy..,..,,,,,,,.,..... 10 Forestry rnstitutions ............. ....... 12 Forest Corporation.... .............. . , ,,,,,, ... ...... .. 12 Forestry Programs ....... ...... ,., .,,.., 13 Social Forestry .... 99 99.....9*9,.9,,, 999,...... 13 III. SUB-PROJECT: JAMKU AND KAShMIIR....,.... 15 A. General ............. ... ... . , , , 15 General Description......... 999,9,,,,999,,,,,,,,99999999915 Project Phasing .... ............ , , , ,.,.... . .. .16 B. Detailed Features ................. ... . . ......,,,999 .......... 16 Operating Procedures................ . .....a...... a..99 9 . 17 Plantation Design and Establishment ....... 19 Planting Programs ............... . . . . . . ........ 20 Nurseries ............. -......*......* ** *. * *.... '20 Plantation Establishment.......................... 0. ......21 Plantation Maintenance9...9...... 9 .,...,,.,,. . .................... 21 Plantation Protection . ........9....... ,......... .. 21 Research ... o. ..,.,,. ........ ... 22 Project Implementation..............999 999 9. 9 99999999999 , 23 Housing and Transportation for Staff (SFW)., ......,,,,, 24 Training ...... .... 25 Expansion of Rashmir Forest Training School, Chattarnar..,,... 25 Expansion of Soil Couservation School, Miran Sahib .........26 Publicity Units ............. 9,99 ...,,,,........,,,,.... .99. 26 Monitoring and Evaluation .............9o.. ........ .... 9 . *:,* 26 Wood Balance Study S., . .......9....999.9..9 . 9 .......... 27 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  -ii- Fellowships ............................................... 27 Consultants ............................................... 27 IV. ORGANIZATION AND MANAGEMENT .................................. 28 Social Forestry Wing ...................................... 28 Project Coordination ...................................... 29 Provision of Training Facilities for Social Forestry Workers and Motivators .................................. 30 V. BACKGROUND: HARYANA ......................................... 31 A. The State of Haryana ...................................... 31 General ...............................................,.31 Panchayat System .......................................... 32 Present Consumption of Energy . . 33 B. Forestry in Haryana ....................................... 34 Contribution of Forests to the Economy ................ . ... 34 Forestry Institutions ................................ ..... 35 Forestry Program ..................................... .... 36 Social Forestry ........................................... 36 VI. SUB-PROJECT: HARYANA ..................................... . . . 37 A. General ... ........ ........ 37 General Description .... ................. 37 Project Phasing . .................... 38 B. Detailed Features ......................................... 38 Operating Procedures ...................................... 39 Plantation Design and Establishment ..................... . . 41 Planting Programs .................... , .,,., . 42 Nurseries ,. . ............... 42 Plantation Establishment .. .. .......... 43 Plantation Maintenance ..................... 43 Plant Protection ............. 43 Research ......................... 44 Project Implementation . 45 Housing and Transportation for Staff (SFW) . . 46 Training ................................. 47 Publicity Units ........................................... 48 Monitoring and Evaluation ................................. 48 Wood Balance Study .................. , .,.,..... . . . , , 48 Fellowships .................... ,. ..........,. 49 Consultants .........., 49 VII. ORGANIZATION AND MANAGEMENT .................................. 50 Social Forestry Wing ...................... 50 Project Coordination ................................,... 51 Provision of Training Facilities for Village Forestry Workers ........................ , , , . .. 52  -iii- VIII. COST ESTIMATES AND FINANCING ...................................... 53 A. Cost Estimates ................................................. 53 B. Proposed Financing ............................................. 54 C. Procurement ..................................................... 55 D. Disbursement and Audits . . . 56 IX. PRODUCTION, MARKETING, FINANCIAL RESULTS AND COST RECOVERY ........ 57 X. BENEFITS, JUSTIFICATION AND RISKS .. 61 Benefits ....................................................... 61 Environmental Impact ............................................ 61 Economic Benefits and Economic Analysis . . 61 Project Risks .................... 63 XI. RECOMMENDATIONS ................... 65 List of Annexes 1 T-l Jammu and Kashmir - Staff and Other Operating Costs T-2 J-zmu and Kashmir - Staff and Other Operating Costs T-3 Jammu and Kashmir - Building and Housing, Vehicles and Equipment T-4 Jammu and Kashmir - Training and Fellowships T-5 Jammu and Kashmir - Communication and Extension, Monitoring and Evaluation, Wood Balance Study T-6 Jammu and Kashmir - Plantation Costs T-7 Haryana - Staff and Other Operating Costs T-8 Haryana - Staff and Other Operating Costs T-9 Haryana - Building and Housing, Vehicles and Equipment T-lO Haryana - Training and Fellowships T-ll Haryana - Communication and Extension, Monitoring and Evaluation, Wood Balance Study T-12 Haryana - Plantation Costs 2 T-1 Jammu and Kashmir and Haryana - Incremental Project Output 3 T-1 Jammu and Kashmir and Haryana - Summary Financial Analysis T-2 Jammu and Kashmir - Financial Analysis - Model 1: Degraded Forests (Kashmir and Chenab) T-3 Jammu and Kashmir - Financial Analysis - Model 2: Degraded Forests (Jammu) T-4 Jammu and Kashmir - Financial Analysis - Model 3: Wetlands T-5 Jammu and Kashmir - Financial Analysis - Model 4: Strips (Kashmir and Chenab) T-6 Jammu and Kashmir - Financial Analysis - Model 5: Strips (Jammu) T-7 Jammu and Kashmir - Financial Analysis - Model 6: Village Wood- lots (Kashmir and Chenab) T-8 Jammu and Kashmir - Financial Analysis - Model 7: Village Wood- lots (Jammu) T-9 Haryana - Financial Analysis - Model 1: Strip Plantations (Zone A) T-lO Haryana - Financial Analysis - Model 2: Strip Plantations (Zone B) T-ll Haryana - Financial Analysis - Model 3: Wetsides T-12 Haryana - Financial Analysis - Model 6: Village Woodlots (Zone A)  -iv.- T-13 Haryana - Financial Analysis - Model 7: Village Woodlots (Zone B) T-14 Haryana - Fiaancial Analysis - Model 9: Sand dunes 4 T-1 Jammu and Kashmir - Farm Budget (Kashmir) T-2 Jammu and Kashmir - Farm Budget (Chenab) T-3 Jammu and Kashmir - Farm Budget (Jammu) T-4 Haryana - Farm Budget (Zone A) T-5 Haryana - Farm Budget (Zone B) 5 T-1 Financial and Economic Prices 6 T-1 Ja-mu and Kashmir and Haryana - Relative Importance of Project Cost and Benefit Streams - Switching Values 7 T-1 Economic Analysis of Project Plantation Components 8 T-1 Jammu and Kashmir - Economic Real Flow T-2 Haryana - Economic Real Flow 9 T-1 Jammu and Kashmir - Locus and Present Values of Total Project Costs and Benefits and Locus of Total Project Cost and Benefit Switching Values for a 12% Opportunity Cost of Capital 10 T-1 Haryana - Locus of Present Values of Total Project Costs and Benefits and Locus of Total Project Cost and Renefit Switching Values for a 12% Opportunity Cost of Capital 11. T-1 Jammu and Kashmir - Expenditure Schedule T-2 Haryana - Expenditure Schedule 12 T-1 Schedule of Estimated IDA Disbursements 13 T-1 Jammu and Kashmir - Pattern of Land Holding 14 T-1 Haryana - Pattern of Land Holding 15 T-1 Reference Material Available in Project File Charts IBRD 23963 Government of Haryana - Project Organization Chart IBRD 23964 Government of Jammu and Kashmir - Project Organization Chart Maps IBRD 16198 IBRD 16199 IBRD 16200 IBRD 16582  -1- INDIA JAMMU AND KASHMIR AND HARYANA SOCIAL FORESTRY PROJECT I. Introduction 1.01 In rural India, commercial energy sources (coal, electricity, oil, etc.) supply very little of the demand, principally due to their high cost. While 50% of villages in Jammu and Kashmir (JAK) and all in Haryana are electrified, crop residues, dung cake and fuelwood (including twigs, leaves and fallen branches often swept from the forest floor) continue to form the main sources of energy for domestic use (paras 2.16 and 5.10). Much of the fuelwood burnt is gathered by women, who, often faced with no alternative source of supply, gather their requirements by tresspassing on forest reserves. Many families, however, due to absence of forest areas adjacent to their homes, are forced to burn only dung cake and crop residues. 1.02 Forests constitute only 3.7% of the area of Haryana State and 12.5% of Jammu and Kashmir State and are distributed non-uniformly over both States, leaving some districts and many panchayats practically devoid of any woodland or public wasteland on which forests can be developed. 1.03 In both States, rapid population growth and expanding agricultural production and growing demands from expanding wood-based industries in JAK has meant that existing forests are being subjected to growing demands for forest products to meet daily requirements of timber, fuel and grazing (including supplementary leaf fodder from trees) for livestock. 1.04 Furthermore, limited expenditures on forest development (only 1% of total government development expenditures over the period 1974-79 in JAK and 0.8% in Haryana's State budget over a similar period) have tradi- tionally been directed to the establishment of commercial plantations and protection of existing reserves. Nevertheless, faced with ever increasing degradation of forest reserves in those areas adjacent to concentrations of human population, forest administrators of both States have come to realize that rapid depletion of their forests could not be stopped by rigid enforcement of the laws, but required development of a policy whereby forestry became more meaningful to rural communities who con- stitute 80% of the population of both States. In addition, throughout India, a national policy has now emerged whereby forests are being estab- lished in cooperation with villagers living nearby and designed to provide products for basic human needs, to generate employment and preserve the environment. 1.05 Land available for the development of forestry in rural areas is limited and falls into four broad categories. Firstly, government owned land, most of which has now been allocated for other use and the remainder of which is generally confined to narrow strips along roads, railways and  -2- canal banks. Secondly, village panchayat owned land, which is histori- cally unevenly distributed amongst panchayats and is normally unsuited to agriculture, but providing much needed grazing for village livestock. Privately owned land forms the third category, generally intensively cultivated and with only field boundaries and small waste patches avail- able for tree growing. Lastly, and scattered throughout India, are areas of forest reserves and many of which, by virtue of their being adjacent to human habitation, have been increasingly subjected to degradation.  -3- II. BACKGROUND A. Forestry in India Sectoral Context 2.01 India's forests account for 23% of the total land area and cover some 75 M ha. Annual domestic roundwood requirements by the year 2000 are projected to be nearly 290 M m3 (fuelwood 225 M m3 and industrial roundwood 65 M m3). Continuation of existing plantation programs of about 100,000 ha annually, should ensure the supply of industrial hardwood (52 M m3) and about half of the coniferous roundwood demand (13 M m3). Regard- ing fuelwood, on the assumption that 17 M m3 continues annually to be supplied from existing resources, provision will have to be made for an additional 208 M m3 by the year 2000. This would require an annual plant- ing program of some 650,000 ha, but in terms of availability of financial resources, this target cannot be achieved. Plantings of at least 300,000 ha annually over the 1980's would be a more realistic target. 1/ 2.02 India's strategy for forestry development now reflects two priorities: firstly, through social forestry programs to supply fuelwood, fodder, small timber and minor forest produce to the rural population and secondly, to develop production forestry to supply the growing needs of the domestic wood products industry (particularly pulp and paper). Encom- passing both objectives is recognition of the vital role forestry plays in soil and water conservation. In order to carry out this strategy, the National Commission on Agriculture (1976) recommended that each State reorganize its Forest Department into two separate wings, one to remain in charge of traditional production forestry and wildlife activities, while a new wing would be established to develop social forestry. The Forest Departments of Gujarat, Uttar Pradesh, West Bengal, Madhya Pradesh, Tamil Nadu and Maharashtra have already created social forestry wings, and Jammu and Kashmir, Haryana, Andhra Pradesh, Bihar, Orissa and Karnataka are expected to follow shortly. It is expected that some 1.93 M ha of social forestry plantations would be established under the auspices of these newly created wings by the end of 1988, reflecting a total government investment of Rs. 5,950 M (US$ 700 M). 1/ The estimates given for fuelwood production differ from those given in previous SARs on social forestry projects. Mission estimates that some 40 M ha of India's forest land's are, more or less, devoid of any tree cover and that current recorded production of fuelwood from forest reserves is less than 10% of total requirements for cooking and heating. The balance is obtained from illegal felling from forest reserves, private plantations and the use of crop waste and dung cake.  -4- Bank Group Role in the Sector 2.03 To assist State governments in carrying out the policy of rural participation in forestry development, IDA has financed projects in Gujarat, Uttar Pradesh and West Bengal States with the following objec- tives: (a) to increase fuelwood supplies through the establishment of plantations on public, village and private wastelands; (b) to secure the cooperation of the local populations by involv- ing them in the planning, execution and protection of planta- tions; and (c) to establish an organization required to support long-term social forestry programs. The Uttar Pradesh Project was appraised in November 1978 and a Credit for US$ 23 M approved in June 1979; the Gujarat Project was appraised in March 1979 and a Credit of US$ 37 M approved in December 1979. Retroactive financing in both projects enabled an early start to be made as staff were recruited and tree nurseries established prior to project effectiveness. A third project was appraised in West Bengal in January 1981 and a Credit of US$ 29 M approved in October 1981. Planting Progress of On-going Projects 2.04 The Uttar Pradesh Project (Credit 925-IN). By the end of the third planting season, the project has achieved the following: Category of Planting Appraisal Target Actual % of Target Strip Plantations (ha) 12,020 15,495 128 Degraded Forest Improvement (ha) 6,055 9,765 161 Community Self-help Woodlots (ha) 680 77 11 Village Woodlots (ha) 2,225 2,584 116 Seedling Distribution 3.6 M 49.6 M The Gujarat Project (Credit 961-IN). By the end of the second planting season the project has achieved the following:  -5- Category of Planting Appraisal Target Actual % of Target Strip Plantations (ha) 10,000 10,688 102 Degraded Forest Improvement (ha) 12,000 11,954 100 Community Self-help Woodlots (ha) 2,640 193 7 Private Woodlots (ha) 400 400 100 Seedling Distribution 51 M 151 M The West Bengal Project (Credit 1178-IN). By the end of the first planting season the project has achieved the following: Category of Planting Appraisal Target Actual % of Target Strip Plantations (ha) 430 502 116 Degraded Forest Improvement (ha) 600 6,000 1,000 Village Woodlots (ha) 110 120 109 Farm Forestry (ha) 1,460 2,902 198 As can be seen from the above achievements, all three projects have made more than satisfactory physical progress. However, it should be noted that the development of community self-help schemes has proceeded slower than anticipated. There are two main reasons for this delay. Firstly, the Indian village is not a homogenous society and group decisions do not come easily or quickly. Secondly, village panchayats have a very limited capacity to raise funds either directly or indirectly for development works. Nevertheless, the demand is there and State governments are seek- ing alternate ways of financing planting operations. Cooperation between villages and Forest Departments, particularly in respect to protection, has improved and costs of this item are much reduced. Tree survival rates are better than anticipated but stove improvement programs have been slow to develop due to high cost of an improved stove. This matter is being investigated. Project management has been good but project monitoring and evaluation procedures slow to be initiated. 2.05 Other assistance to the forestry sector includes the Madhya Pradesh Forestry Technical Assistance Project (Credit 609-IN), which is the intital phase of a major project aimed at the establishment of a forest-based industry in Bastar District. The feasibility study (November 1980), financed under the Credit, recommended the establishment of an integrated industrial complex with one mill producing sawnwood and a pulp mill producing kraft pulp to supply a printing and paper mill. The Kandi Watershed and Area Development Project (Loan 1897-IN, approved in 1978) involves reforestation and pasture development over some 18,000 ha of Punjab's Siwalik Hills.  -6- 2.06 As a result of the satisfactory progress in the implementation of the three earlier social forestry projects and based on requests prepared by the State governments of Jammu and Kashmir and Haryana, a mission comprised of D.A. Mitchnik, W. Nickel (IDA), N. Chatterjee, A. Molnar, J. Smart and R. Noronha (consultants) visited both States in October/November 1981. B. The State of Jammu and Kashmir General 2.07 The State of Jammu and Kashmir with an area of 138,214 km2, has a population of about 6 M (1981), of which 80% reside in rural areas. Economic development in the State has been slow. Heavy industries are non-existent. The most important small industries are cottage industries, such as manufacture of silk cloth, woolens, embroidered cloth, carpets, wood carving and papier mache articles. Tourism is significant, providing 6% of State GDP. Agriculture is predominant, accounting for 51% of State income and providing 71.5% of its employment. 2.08 Population density averages 130 persons per km2, but there is 2 considerable inter-district variation ranging from a high of 275 per km (1971) in Srinagar/Badgam districts in the Kashmir valley to a low of 29 per km2 in Doda district in the Chenab valley. There is a negligible proportion of scheduled castes in most districts, excepting Doda and Udampur and Jammu in the southeast part of the State, where about 25% of the population falls in this category. 2.09 The rural population is spread over 5,857 villages, each with an average population of about 800. Ecological differences and socio-cultural factors influence variations in the incidence of poverty between regions and different segments of the population. Per capita income is low, estimated at 1222 Rs (1980, US$144). Prior to land reform, which was started in 1973, tenancy and presence of landless laborers was high. At present farms are in general small with 78% of all holdings having less than 2 ha. Details are given in Annex 13. 2.10 Livestock forms an integral part of village life; a household possesses on the average three or four cattle or buffalo which provide milk, draught power, manure and in more than half of the State, dung cake for cooking. Cattle and buffalo are generally grazed on community lands near the villages and their feed supplemented with agricultural products and tree loppings. There is a sizable population of migratory sheep and goat flocks exploiting the high alpine pastures in the north and the Siwalik Hills in the south. 2.11 Population pressures and the increasing livestock numbers (of which there are an estimated 4.7 M) necessitate the continual search for food, fuel, and fodder. This has resulted in indiscriminate tree-cutting  -7- and increasing erosion. Consequently, the southern and western parts of the State now have large tracts of barren waste lands. In the northern, more forested areas of the State, there is increasing competition between commercial and fuelwood needs leading again to uncontrollable depredations of the forests. Panchayat System 2.12 The Jammu and Kashmir Village Panchayats Act, 1958, introduced a two-tier system of panchayats (elective corporate bodies) in the State. The two tiers comprise village panchayats at the lowest level which con- sist of a group of revenue villages (mauza) at the lower level; and at the Block level (usually a sub-district) a Block Panchayat Board (BPB). At the BPB level provision is made for the representation of women. There are 1,406 village panchayats in the State. 2.13 Panchayats can undertake a wide range of activities which fall under two heads: compulsory, and discretionary functions. The former includes protection of all agricultural lands from floods and erosion; the latter, the right to plant trees, including fruit trees, on waste lands. The State also has the power to add to the compulsory functions of the panchayat. From 1958 till 1973 all undemarcated forests were vested in the panchayat. 2.14 The State provides both administrative and financial assistance to panchayats. Under the former category, officials are seconded or trans- ferred to panchayats to act as secretaries. Further, in preparation of the annual plan, design for all works over Rs. 50 (approx. US$6.00) are prepared by the Block overseer, a government employee. The annual plan is approved by the Block Advisory Committee, the Block Development Officer and, since 1976, the District Development Board. Most panchayat funds are derived from State grants and cover regular expenses (salaries, estab- lishment charges, travelling allowances) and those of assigned works. Funds raised by each Panchayat through taxes, rates and fees are small and generally average about Rs. 4,000 (US$470) per year. All accounts are audited annually by the Director, Community Development, and arrears of audit are few -- an estimated 10 percent. 2.15 Since social forestry is a relatively recent program in the State, there has not been a major involvement of panchayats in this program. Further, historical problems such as land availability have been con- straints on such involvement. There is, however, widespread recognition of the need for social forestry and a willingness on the part of many panchayats to plant trees on panchayat lands.  -8- Present Consumption of Energy 2.16 No accurate figures are available on the total domestic energy consumption in the state of Jammu and Kashmir. Approximately 50,000 tons of fuelwood are produced annually from JAK forests. Commercial energy sources (coal, electricity, oil) supply very little of the demand. While 50% of rural villages in JAK are electrified, only a negligible amount is used for cooking or heating purposes due to the high cost. In JAK these sources probably provide at most 3%, with the remaining 97% being met by fuelwood and dung cake. 2.17 The fuelwood requirement varies within the project area. Mission estimates based on limited available data for consumption in Kashmir region are about one to two bundles of wood (20 kgs. each) per household per day or 1.2 tons per capita FWE yearly. 1/ In the Chenab valley yearly requirements are about 1.1 tons FWE, while in the warmer plains region of Jammu, per capita consumption is roughly 0.8 tons FWE p.a., based on a daily household requirement of 18 kgs. of wood. Total domestic energy consumption in the State is thus about 6.2 M tons/FWE p.a. of which only 0.2 M tons is met from commercial energy sources. The remaining 6 M tons EWE is estimated to be derived from: Amount 1/ FWE 1/ % Fuelwood and Charcoal 4.2 M tons 4.2 M tons 70 Dung Cake 4.2 M tons 1.8 M tons 30 1/ Mission Estimates. To meet the present requirements of fuelwood and dung equivalent (assuming a mean annual increment of 7 tons of wood per ha) an area of 0.8 M ha of plantations would be needed. 2.18 Dung cake is used extensively as a fuel in both the Jammu and Kashmir regions, while in Chenab, due to greater density of forest and presence of natural, private tree stands, only wood is used as fuel. In Jammu and Kashmir, release of dung cake for use as an organic manure would add considerable nutrient value to the soil for crop production. One ton of wet dung (1/5 ton dung cake) yields 3.5 kgs. of nitrogen, 1.5 kgs. of 1/ Fuelwood Equivalent.  -9- phosphate, and 1 kg. of potassium, 1/ and in addition significant improve- ment of soil tilth which would otherwise be lost. In all three regions considerable time (up to half a day) is spent, by villagers, particularly women and children, in collecting cow dung, wood, and even leaves and twigs to meet daily domestic energy requirements. Some fuelwood is sold in the region, with prices averaging Rs. 200 per ton. Dung cake is sold mostly in the Jammu region at Rs. 0.13 per cake, or Rs. 250 per ton. C. Forestry in Jammu and Kashmir Environmental Conditions and Forest Types 2.19 Jammu and Kashmir State covers a wide range of ecologies -- from the temperate Himalayan range in the North with its peaks, valleys and foothills to the sub-tropical plains in the South. The project area comprises three ecological regions: Kashmir, Jammu and Chenab, excluding Ladakh region which is not included in the project area, because of extreme cold desert conditions which makes the establishment of tree plantations very difficult. 2.20 The Kashmir Valley lies in the northern part of the State, originating from an old lake bed and is more or less flat with varied lake terraces and is surrounded by hills with steep-sided valleys which give rise to the Jhelum river system. The valley itself is at an elevation of 1800 meters above sea level with soils formed from sediments and alluvium of pleistocene and post-pleistocene age. The highest part of the project area is at 8,600 meters a.s.l. at the summit of K2 in the Himalayan system of largely crystalline granite and metamorphic rocks. 2.21 The Jammu plains in the South lie at around 500 meters above sea level and are of recent alluvial origin. They are bounded to the north by the Siwalik Hills, formed of sandstone conglomerates and clays by outwash from the Himalayas, and which form the Tawi river catchment flowing into the Chenab river in Pakistan. The intervening hilly region of steep-sided valleys with unstable slopes lying between the Siwalik Hills and the high Himalayas, gives rise to the Chenab river system. The geological strata dip towards the North and it is these northern slopes which have more stable soils and provide better conditions for tree growth. 2.22 The three regions have different climates dependent on the incidence of monsoon rainfall and elevation. A winter season (November to February) occurs in all three regions. Throughout Kashmir and in the higher parts of Chenab, the winter is severe with temperatures below 1/ National Dairy Development Institute, Karnal.  -10- freezing point; while in the lower parts of Chenab and in Jammu somewhat milder winter conditions prevail. 2.23 In Kashmir and the higher parts of Chenab and Jammu much of the precipitation falls as snow from December to February. In Jammu and lower Chenab heavy monsoon rains occur in July and August but are largely prevented from reaching Kashmir by the intervening Pir Panjal mountain range. Dry conditions prevail on the plains in April-May-June and in October-November. Annual rainfall varies from 1,350 mm (rainfall equiv- alent) p.a. in the Kashmir hills to 650 mm in the Kashmir Valley at Srinagar; and from 1,500 mm in the Jammu foothills to 1,200 mm on the plains. 2.24 The natural forests of Jammu and Kashmir fall into three broad types correlating with the three climatic regions, viz.: the dry temperate forests of Kashmir, mainly conifer; the wet temperate forests of Chenab, both conifer and broadleaved; and the subtropical deciduous forests of Jammu. 2.25 The forests are wholly owned by the State and are under the managemen5 of the Forest Department. The total area of State forests is 21,000 km (15.2% of total geographic area). About 35% of State forests not committed to National Parks and Game Reserves, are more or less devoid of tree cover through uncontrolled grazing and indiscriminate tree felling by the rural population. In addition, the State has 341,000 ha of waste and marginal land (excluding current fallows), much of which is suitable for afforestation. 2.26 The productivity of much of the conifer forest is high having been exploited under controlled working plans and naturally regenerated for many years; but the outer edges of these forests, adjoining alpine pasture and the farming areas are everywhere being severely damaged or destroyed. 2.27 An understanding of forest conservation is lacking in most sec- tions of the community. Traditionally, the forest has been regarded as an apparently inexhaustible supply of free produce and the free use of the forests is taken for granted by the rural population. During the last decade there has been increasing realization by the Forest Department of the need to promote social forestry and a small social forestry program has been started (para 2.39). Contribution of Forests to the Economy 2.28 Contribution of the forestry sector to State income was estimated in 1979 to be 7% (Rs. 500 M) out of a total of Rs 6,992 M. In 1970-79, the recorded average a nual production from the State forests was 442,000 m3 of timber, 77,000 m of fuelwood and 34,000 m tons of resin. In addi- tion, a wide variety of minor forest products were extracted, including  -11- bamboos, gums, dried leaves, edible flowers, fruits, medicinal plants and oilseeds. 2.29 State forests support a number of small-scale industries: some 1,200 sawmills, 2 joinery milling units, 1 match splint unit, 1 resin processing unit and several cottage scale units producing sports goods such as cricket bats and badminton rackets. 2.30 Wood obtained from poplars grown on farmers' lands in the Kashmir Valley helps to sustain the fruit growing and export trade. The present annual production of fruit, mainly apples, is about 0.45 M tons for which a significant quantity of wood is required for manufacturing shooks (fruit boxes) for packing purposes. While trade in apples is expected to rise from about .40 M m tons in 1980 to an estimated .51 M m tons by 1987, demand for shooks has probably peaked with the recent introduction of cheaper corrugated cardboard tray-pack cartons. 2.31 The State forests also help to sustain the thriving wood hand- icrafts industry. Carved bric-a-brac, furniture, etc., made of walnut wood are a specialty of the State and are sold to tourists and exported. It is estimated that the current annual employment in such small scale cottage industries and shook manufacture totals some 8.4 M mandays. 2.32 The forests provide considerable benefits to marginal farmers and landless farm laborers (who form the bulk of the population in and around the forests) in the form of free fuelwood, fruit, flowers, fodder and grazing, medicinal plants, leaves, poles for hut construction, etc. Employment in forest areas also provides the main source of earnings to these people. In 1979-80, primary forest production generated some 7.6 M mandays of employment. 2.33 Shortages of primary forest products, especially fuelwood, build- ing poles and fodder are becoming increasingly severe and are likely to worsen in the near future. In view of the acute shortage of fuelwood and charcoal in the urban areas, the Forest Department has had to convert good grade timber for meeting these requirements. Although rehabilitation and improved management of the existing forest estate will help to alleviate the situation, the magnitude of the problem and the uneven geographic distribution of existing forest resources are such that the long-term solution lies in the afforestation of new areas. Presently, many areas such as road, rail and canal reserves, and other wastelands that could grow trees, are unproductive. Thus, afforestation of new areas, combined with rehabilitation of existing degraded forest would produce a reasonably well distributed forest resource, with environmental as well as directly productive benefits.  -12- Forestry Institutions 2.34 The Head of the Jammu and Kashmir Forest Department (JAKFD) is the Chief Conservator of Forests (CCF). He is supported at headquarters by one Additional CCF (Addl. CCF) and one Deputy Conservator of Forests (DCF). Also directly responsible to him are eight Conservators of Forests (CF) and one Deputy Wild Life Warden. 2.35 At field level there are 7 operational Circles, each headed by a CF. Each of these Circles is responsible for 3 to 9 Divisions (a total of 48 Divisions). Each Division is headed by a Divisional Forest Officer (DFO), who is usually a DCF and is assisted by an Assistant Conservator of Forests (ACF). Within a Division there are 3 to 4 Range Offices, each staffed by a Forest Ranger (FR) who is responsible for all technical matters associated with the forest under his control. Each FR covers 3 to 4 Blocks and each is staffed by a Forester who is responsible for all forestry activities within his Block and the supervision of 2 to 3 Forest Guards (FG) employed to protect the forests. 2.36 There are four levels of formal forestry training. Indian Forest Service Officers (professional) are recruited from science graduates and undertake a two-year course at the Indian Forest College operated by the Central Government. State Forest Officers are also recruited from scielce graduates, or promoted from the ranks of Forest Rangers, and trained in the State Forest Service Colleges operated by the Central Government. Range Officers are recruited partly from science graduates and partly from serving Foresters. These are trained for two years at the GOI Forest Rangers College at Dehra Dun. Foresters are recruited from outside the service or from the ranks of serving Forest Guards. They are trained at a one year course given at the Foresters Training Schools at Chattarnar and Miran Sahib in JAK State. Forest Guards are recruited from secondary school leavers and trained at one of the FG training schools at Chattarnar and Miran Sahib. Forest Corporation 2.37 The Jammu and Kashmir State Forest Corporation was established in 1979 and replaced the erstwhile Government Lumbering Undertaking. Created under the Jammu and Kashmir State Forest Corporation Act, 1978, the primary role of the Corporation is to undertake removal and exploitation of forest resources entrusted to it by the Government. The Corporation is also expected to undertake research programs relating to forestry and forest products in the State.  -13- Forestry Programs 2.38 All State forests are managed under the traditional form of 5 or 10 year working plans which are regularly brought up to date by the Forestry Department. Reliance has been placed on natural regeneration for replenishing exploited conifer forest using a 30-year regeneration period and a 120-150 year rotation. However, there are now great difficulties in the upper and lower reaches of the forests due to grazing pressure and to increased lopping and hacking of standing trees by the rural population and the rate of successful regeneration has fallen behind the rate of exploitation, so that there is now a net annual overcutting of forests. In addition, small plantations have been established in scattered localities for soil conservation or for growing fuelwood for the urban population including a larger area of Willow (Salix alba) plantations in the permanent wetlands surrounding Wular lake and on other similar sites in the Kashmir valley. At the end of 1980, the total area of plantations was: Wetland Plantations Kashmir Valley 7,287 ha Farm Forestry Plantations Kashmir Valley 8,634 ha Chenab Valley -- Jammu Region 1,520 ha Total (Wetland & Farm Forestry) 17,441 ha 2.39 Total tree nursery production during 1980-81 in both Government and private sectors, is estimated at 10 M plants equivalent to 4,000 ha of plantations. 2.40 Forest revenue has increased substantially over the last five years from Rs 92.8 M in 1976-77 to Rs 340 M in 1980-81; but only a small part of forest revenue has been reinvested in forest development, totall- ing only Rs 37.5 M in the 5th plan period, 1974-79. This was only 1% of total government development expenditure during the same period. During the 6th Plan (1980/81 - 84/85), forest development expenditure was increased to Rs 125 M or 3% of total development expenditure. Social Forestry 2.41 Although a Social Forestry section of the Forest Department was established under a Conservator of Forests in 1971-72 with 4 Divisions (now 6), activities have largely been concerned with planting of institu- tional owned land. Free seedlings have been available from a number of nurseries for distribution through Block Development Officers to farmers,  -14- but this program only reaches a very small part of the rural population. Although farmers in the Kashmir Valley are accustomed to raising their own poplar and willow plants from cuttings, they would prefer to be supplied with rooted cuttings.  -15- III. SUB-PROJECT : JAMMU AND KASHMIR A. General 3.01 The project's primary objectives would be to increase supplies of fuelwood to rural areas through the establishment of 44,000 ha of planta- tions located in 12 districts of the State. Secondary objectives would be to provide poles, small timber, fodder grass, fruits, oilseeds and other minor products. In order to carry out this program the project would provide training facilities, vehicles, housing, equipment and additional staff for research and extension activities. The project would result in considerable seasonal employment, estimated at 12 M man days 1/ and create 754 permanent jobs over 5 years. General Description 3.02 During a five-year period the project would: (a) establish 5,000 ha of village woodlots; (b) rehabilitate and reforest 17,000 ha of degraded forests; (c) establish 1,000 ha of strip plantings along roads, canals and railroads; (d) establish 19,000 ha of farm forestry on private land; (e) establish 2,000 ha of plantings on wetlands; (f) establish additional nurseries to provide planting stock; (g) expand the existing Forester/Forest Guard schools; (h) provide forestry staff at the operational and extension levels, including staff to support publicity, research, training, and monitoring activities; (i) strengthen research activities, and construct tree seed storage godowns; (j) develop training of project staff including provision of fellowships; and (k) carry out a wood balance study. I/ Equivalent to Rs. 108 M (US$ 12.7 M) or in the form of wages for unskilled labor.  -16- Prime responsibility for implementation would be with the Social Forestry Wing (SFW) in the Forestry Department. Project Phasing 3.03 Given below is the proposed planting program: Planting Program (JAK) (hectares) ---------------- Project Year--------------- Category /a 1 2 3 4 5 Total Strip Plantations 200 200 200 200 200 1,000 Wetlands 200 400 400 500 500 2,000 Degraded Forests 300 1,100 2,900 5,700 7,000 17,000 Village Woodlots 100 300 950 1,650 2,000 5,000 Farm Forestry 900 2,800 4,200 5,300 5,800 19,000 GRAND TOTAL (hectares) /b 1,700 4,800 8,650 13,350 15,500 44,000 /a Categories of plantations contain various models and species to suit varying climatic conditions (Project File, Item 1, Tables 1-9). /b Because this is a somewhat innovative approach and it is impossible to predict with certainty Panchayats and farmers' response to alternative approaches to social forestry, flexibility would be maintained during project implementation and would allow shifting from one category to another according to results. This would be accomplished by monitoring the results (para 3.44) and by a joint GOJAK/IDA review in project year 3. B. Detailed Features 3.04 All five categories of plantations (village woodlots, wetlands reforestation of degraded forests, afforestation of eroded agricultural lands and wastelands and strip plantations) have differing conceptual, establishment, management, harvesting, marketing, legal and funding fea- tures which distinguish them from one another. Details of each category are summarized in the following paragraphs. 3.05 Village Woodlots (5,000 ha respresenting 11.3% of total planting program). Social Forestry Wing (SFW) would establish a minimum of 5 ha of plantation per village panchayat and maintain the plantation for a period of 4-5 years and employ labor for this purpose from the concerned panchayat. Cost of planting, maintenance and protection would be borne by  -17- SFW for the first 5 years but the local population would participate in protecting the plantation. Thereafter, management and protection of the plantation would be the responsibility of the village panchayat. At first major harvest after establishment, SFW would recover its direct costs (excluding the cost of seedlings) from the sale of fuelwood, timber, or poles and the cash balance would be given to the panchayat. The panchayat would utilize the funds either for financing public works in the village (such as the construction of a water supply, or village road), or finance the establishment of additional village woodlots. Villagers would collect grass, fallen wood and tree loppings from plantation areas (estimated at an annual production of 5-7 tons per ha of fuelwood from the 5th year onwards, depending on species planted). 3.06 Village Woodlots would be established mainly in Kashmir and the Chenab valley where the availability of private waste land is limited. In the Kashmir valley much of the land available for private planting is already under tree cover. Both areas, however, have large tracts of village common lands which can be used for tree planting. In Jammu, preference would be given to farm forestry where there is sufficient marginal and waste lands for private planting. Operating Procedures 3.07 Social Forestry Wing, acting through its field staff, would encourage villages to participate in establishing village woodlots by explaining the benefits to be obtained from communal plantations and assist the panchayat in demarcating areas of waste lands which can be planted to trees. In addition, SFW would explain the nature and provi- sions of the agreement to be entered into between the panchayat and SFW (Item 2 in Project File). Agreement was reached during negotiations on the nature and provisions of the model contract. 3.08 Once proposals have been agreed upon, village panchayats would be assisted with implementation through regular visits from Social Forestry Workers (SFW) and Motivators (para 4.05 and 4.06). SFW and Motivators would develop the villagers' skills and understanding of forestry through these visits, increased publicity (films, posters, talks) and by organiz- ing one-day visits of groups of villagers to demonstration areas where panchayats or farmers have developed their own plantations. In addition, groups of progressive farmers and village panchayat committees would participate in monthly one-day orientation training organized by the Deputy Conservator of Forests and Asst. Conservator of Forests at the district level. 3.09 Strip Plantations (1000 ha representing 2.2% of total planting program). SFW would establish plantations alongside roads, canals and railways. Villagers who live close to these plantations would collect, free of cost -- grass, fodder, fallen wood and tree loppings (estimated at  -18- an annual production of 5-7 tons per ha). In return, they would cooperate with project field staff in protecting these plantations. This form of cooperation between the local population and forestry staff for the protection of strip plantations and sharing of benefits has been in prac- tice for the past two decades in all States in India. This has meant that, by and large, such strips are not protected with barbed wire or other forms of permanent fencing. 3.10 In many areas where population density is high, the only waste- lands available are along roads, canals and railways. Therefore, strip plantations become the prime source of minor forest products for the local population. 3.11 Wetlands (2,000 ha representing 4.5% of total planting program). SFW would establish plantations on State owned permanently inundated wetlands. Village panchayats situated close to these areas would collect fallen wood and tree loppings under the supervision of forestry staff. SFW would recover its costs from the sale of fuelwood (generally to Srinagar). Presently the supply of fuelwood to Srinagar (estimated at 10% of overall Statewide fuelwood requirements) is carried out by the State Government to ensure that adequate supplies are available to urban areas and particularly in winter where temperatures are well below freezing point. Cooperation between FD and village panchayats for the protection and sharing of benefits of plantations on wetlands is being successfully implemented on established wetland plantations (para 2.38). 3.12 Farm Forestry (19,000 ha representing 43% of total planting program). SWF would distribute approximately 47.5 M seedlings free of cost (some 2,500 seedlings per ha) to farmers to plant on private owned waste lands and field boundaries. 3.13 Degraded Forests (17,000 ha representing 39% of total planting program). SWF would rehabilitate and reforestate degraded State-owned forest reserves through replanting with fuelwood and other species. Labor would be employed from nearby panchanyats for establishment and main- tenance. Villagers living at the edge of these forests would continue to collect fallen wood, fodder and tree lopping under the supervision of forestry staff and at felling 25% of fuelwood yields would be given to neighboring village panchayats for distribution to local people. In return, villagers would refrain from indiscriminate felling and destruc- tion of State-owned forests. The nature and provisions of the agreement to be entered into between the panchayat and SFW is given in item 4 of the Project File. Agreement was reached during negotiations on the nature and provisions of the model contract. 3.14 For the last three decades, foresters in India have been faced with a major challenge: how to protect and improve the country's remain- ing forest resource and how to preserve the environment. Past attempts by  -19- forestry staff to enlist the cooperation of rural population in the protection of forests have nearly always failed since foresters have always been regarded as another type of police force. Moreover, State owned forests are often the only source from which the local population can obtain fuelwood. Under the project, the local population would, for the first time, collect forest produce under the general supervision of forestry staff and in return, it is hoped that it will refrain from piecemeal destruction of forests. In addition, by encouraging farmers to plant trees on field boundaries and other marginal lands and by estab- lishing village woodlots, it is hoped that pressures put on existing forests will be alleviated. Plantation Design and Establishment 3.15 Overall 60-95% (depending on location) of trees planted would produce fuelwood and/or small timber. Many of the recommended species also produce good leaf fodder and the production of naturally-occuring grasses would be enhanced by the protection of plantations from uncon- trolled grazing. Although plantation produce would be mixed, the main emphasis would be on fuelwood and small timber production. Fruit trees, however, are an important component of some models; and the planting of suitable species for leaf charcoal manufacture is an important feature in Kashmir. 3.16 Although many of the recommended species are indigenous to India, 70% of planting would be of exotics, which are well naturalized and known to FD. The range of species recommended is wide and covers a large range of ecological conditions. Decisions on the species mix would be made locally after considering the objectives of the plantations and the needs of the locality. To ensure adequate seed supplies, the project will provide funds for the construction of ten seed godowns, one for each Division. 3.17 Overall nine plantation models have been developed to meet the different objectives and site conditions of the State. However, many more variations to cover the needs of subsites are possible, but in general all models are rainfed, although limited hand watering is proposed for drier sites. Details are given in Item 1, Tables 1-9 of the Project File. 3.18 In strip plantations, fuelwood species predominate, with ornamen- tal and shade trees included along roads. Fruit trees are included in the Kashmir model. 3.19 In village woodlots and degraded forests, the emphasis is on fuelwood and tree fodder species; bamboos are an important constituent in the Siwalik Hills.  -20- 3.20 Wetland plantations in the Kashmir valley would be planted to willow and poplar only. 3.21 Species recommended for farm forestry would be predominantly willow and poplar in Kashmir and Eucalyptus and Leucaena species in Jammu. 3.22 Planting costs are given below: Category of Planting Establishment Costs (Rs/ha) a/ Degraded Forest 4,200 - 4,500 Wetlands 4,000 Strips 5,000 Village Woodlots 3,800 - 4,000 Farm Forestry 600 - 900 a/ Expenditures incurred during the first five years, including nursery, advance soil works, establishment, maintenance and protection. On average, labor costs represent 90% of total planting expenditures (Project File, Item 1, Tables 1-9). Planting Programs 3.23 Annual planting programs would be agreed at State and district committee meetings (see para 4.04 for constitution of these committees). Planting sites would be selected and surveyed during the winter months in Jammu and during the early summer in Kashmir, and pitting and other advance soil and protective works carried out thereafter and in time for the planting season. Pitting would be standard practice except on degraded slopes where contour trenches would be dug. At high elevations, planting would commence in late autumn and if necessary be completed in the following spring. In Jammu potted seedlings for the current year's planting would be transported to the site in advance of the onset of the monsoon in late June/early July. Nurseries 3.24 At present there are 15 nurseries in the State providing for social forestry activities. Under the project, at least one permanent nursery would be established in each Administrative Block; 1/ 1/ There are 69 Block Panchayats.  -21- additional temporary nurseries would be established as and when required. Nurseries would be sited close to permanent water and either irrigation or hand watering of seedlings would be standard practice. Permanent nur- series would be in charge of a Forester, temporary ones under the control of SFW field staff. 3.25 Most tree seed would be collected locally and stored and tested at seed godowns to be located in each Division. Seed collection would be regularized and restricted to seed production areas to be approved by the Research staff. Improved provenances and additional species required for the research program would be imported. 3.26 At lower elevations most species would be grown as seedlings in polythene tubes; but sissoo, however, would be planted as stumps and some bamboo species as culms. In the Kashmir valley and at higher elevations in Chenab naked rooted seedlings would be planted and poplar and willow raised as naked rooted cuttings. Most planting stock (except fruit trees) would be planted out at less than one year old. Plantation Establishment 3.27 Fertilizer application at planting is not current practice but would be a subject of the research program. Plantation Maintenance 3.28 Tending operations would consist of replacement of casualties (once only in the year after planting) and weeding round trees. For costs see Project File, Item 1, Tables 1-9. 3.29 Weeding and working of the soil around the base of each tree would generally be undertaken at most three times in the year of planting and once or twice in the following four years. A particular feature of the maintenance system would be that people living nearby would be encouraged to remove the grass growing around trees for use as fodder thus performing a valuable weeding function and reducing the fire risk. Plantation Protection 3.30 All plantations require protection against insect attack, and against grazing and fire. Protection against termites (at lower eleva- tions) would be provided through the use of insecticides applied to the soil of potted plants in the nursery in the field as necessary. Throughout the State, the support for social forestry program appears to be considerable and much communal responsibility for restraining grazing animals can be expected, especially as cut fodder would be made freely available to all. Wherever necessary brush fences of local materials  -22- would be constructed usually for the psychological effect rather than as a physical barrier to animals. In strip plantations some individual tree protectors, using local material would be used sparingly, at a cost of Rs 1 per tree. Patrolling watchmen have been provided for whose respon- sibility would cover from 2 ha (in the first year of narrow strip planta- tions) to over 20 ha for large blocks of plantation in the plains and hills. Research 3.31 The project would provide for increased research and seed testing. The research program would be under the direction of the Conservator in charge of the Working and Research Circle and would be carried out by two D.F.O.'s (Research) of the rank of DCF, one based at Srinagar and one at Jammu. Field trials would be carried out at six field stations, each in the charge of a research assistant. The six stations would be divided equally between each D.F.O. Research, representative of the range of environmental conditions to be found in the State. 3.32 Additional research staff and buildings would be provided through the normal Forest Department budget but the project would provide addi- tional funding required to meet additional research needed to support and improve the social forestry program. The Additional Chief Conservator of Forests in charge of the project would participate in formulating and reviewing the Department's overall forest research program and would thereby ensure that the research needs of social forestry are included. 3.33 The research program would include the following subjects: (a) Nursery studies aimed at reducing costs of seedling production through the introduction of techniques to produce better, sturdier plants in a shorter time; and would include improved soil mixtures and the use of fertilizers, pot size and spac- ing, conditioning through root pruning and control of water- ing, direct sowing into containers, the issue to farmers of germinated seedlings for transplanting and of seeds for their direct planting; (b) Silviculture studies would be made on the effects of alternate methods of pitting, fertilizing planting date, plant size, pollarding and coppicing, rotation length and timing of opera- tions on reducing establishment costs; (c) Studies would be done on collection, handling, storage, pretreatment and germination of tree seed; seed collection areas would be identified and a reliable system of record keeping at each seed godown would be developed;  -23- (d) The growth performance of trees in strips as well as blocks would be studied and spacing trials instituted; (e) Intercropping trials studying the inter-relationships of trees and fodder crops and also mixture of trees would be done to measure the 3-dimensional effects of the model used; (f) Although for the most part, the species proposed are well proven and no major changes are expected during the life of the project, some limited studies on species introduction and provenance trials would be carried out using both fodder and fuelwood species. These studies would determine the most suitable provenance of the five most widely recommended species and find viable alternatives, particulary for planting in Kashmir; and (g) Socio-economic studies would be carried out to determine opportunity costs of farming and forestry, basic wood and fodder needs and preferences, and development of different species mixes. Such work would be instituted early in the project and form a vital function in directing further techni- cal research. A detailed research program is given in the Project File, Item 4. Project Implementation 3.34 The success of the proposed social forestry program will depend largely upon an efficient organization having suitably trained and equipped staff and acting in full cooperation with rural people. To achieve these objectives, the project would strengthen SFW by the recruit- ment of additional staff for forestry extension and the creation of two special support units: one for public relations and the other to evaluate project progress and impact (paras 3.43 and 3.44). 3.35 Annual planting targets (para 3.03) have been geared to the rate at which SFW can recruit and train staff. Details of staff requirements are given below and in Annex 1, Table 1.  -24- Project Staff Requirements 1/ To be transferred Total at Category from FD to SFW Full Development Field Staff Addl. CCF 1 1 CF 2 2 DCF 12 12 Asst. Conservator of Forests (ACF) 10 10 Publicity Officer (PO) (to be recruited) 2 Divisional Publicity Officer (DPO) (to be recruited) 10 Forest Rangers (FR) 34 34 Forester 150 150 Social Forestry Worker (SFW) (to be recruited) 245 Motivators (to be recruited) 1,400 Other Categories of Staff (to be recruited) 48 Support Staff (Accountants, Clerks, Drivers) (to be recruited) 240 Consultants (6) (to be recruited) 120 manmonths 1/ All staff assigned to SFW are incremental to the project. This includes staff transferred from FD and staff to be recruited and trained. Housing and Transportation for Staff (SFW) 3.36 Much of the success of SFW's activities would depend on regular and frequent visits by field staff to plantations, village panchayats and individual farmers, all of which would be scattered over wide areas. It is, therefore, vital that as far as possible field level staff and their supervisors live near their work and that they are sufficiently mobile to enable them to function effectively. At present, housing for rent in some rural areas is limited and staff often live far from their work and rely on public transport. To help overcome this, the project would construct housing which would provide accomodation for 6% of forestry field staff. Assurances were obtained during negotiations that GOJAK would ensure that field staff would live in the area assigned for their operations and for this purpose would provide housing or rent allowance as necessary. Designs would be in accordance with existing government standards which apply to all Government departments.  -25- Housing Requirements (nos.) Unit Cost Project Year Total (Rs. '000) 1 2 3 4 5 DCF's Residence (100.00) 1 1 2 Staff Quarters (50.00) 3 3 3 3 4 16 Teacher Staff Quarters (75.00) 2 2 4 Mali's Quarters (25.00) 4 4 4 4 4 20 3.37 The project would provide vehicles at headquarters, divisional and circle levels, namely: Category Project Year Total 1 2 3 4 5 4-wheel drive 12 5 17 Van 4 6 10 Bus 2 2 Motorcycle 10 8 7 25 Truck 1 1 2 Bicycles 70 90 90 250 Training 3.38 Project related training would be provided to an additional 150 Foresters, 245 Social Forestry Workers (SFW) and 1,400 Motivators as well as to farmers and village leaders. All transferred Forest Department staff would receive orientation training in social forestry and forestry extension. This program cannot be accomodated within the existing train- ing facilities which would be enlarged under the project by providing additional buildings, equipment and staff. Expansion of Kashmir Forest Training School, Chattarnar 3.39 The State has a 70-year-old institution located in the Kashmir valley and providing training to Deputy Rangers/Foresters through a one-year certificate course and to Forest Guards through a 3-month course. The school can accomodate 72 students at a time and administers annually one course for 40 Deputy Rangers/Foresters and two courses each for 32 Forest Guards. The project would enlarge the present facilities to accomodate an additional 60 students.  -26- Expansion of Soil Conservation School, Miran Sahib 3.40 The State also operates a 20-year-old institution near Jammu, which provides in-service soil conservation training to Foresters through a six-month course and basic training to Forest Guards training through a three-month residential course. The school can accomodate 32 students at a time and undertakes one soil conservation course for 32 Foresters and two courses for 32 Forest Guards each year. The project would enlarge the present facilities to accomodate an additional 60 students. 3.41 Each school would be expanded by constructing additional class- rooms (2), dining hall and kitchen, dormitory blocks (2) ablutions, staff rooms (2) and staff housing (2) at a total cost of Rs 1.8 M. One truck and one bus would be provided for each school, as well as the necessary furniture and equipment. Design of buildings for both schools would be in accordance with existing government standards for similar buildings con- structed elsewhere and which apply to all government departments. 3.42 Staffing levels would be raised by providing at each school two additional instructors at the Forest Ranger level. In addition, two locally engaged consultants in communication and extension would be provided for a two year period at each school to plan and carry out the program for extension training. Assurances were obtained at negotiations that the four locally engaged teaching consultants would be appointed not later than June 30, 1983. Publicity Units 3.43 Two Publicity Units would be established and each attached to a Forestry Circle. Additionally, each Division (there are a total of 10 Divisions) would employ a Divisional Publicity Officer (DPO) to coordinate all activities associated with publicity and dissemination of information in his Division. Under the project, funds would be provided for addi- tional staff, equipment and materials to support DPO in their work. Assurances were obtained at negotiations that the two Publicity Officers heading the Publicity Units would be appointed not later than December 31, 1983. Monitoring and Evaluation 3.44 The Project would provide funds to establish a Monitoring and Evaluation Unit (MEU) headed by a DCF and supported by statistical staff and field enumerators. Assurances were obtained at negotiations that the Unit would be established not later than December 31, 1982. The unit would, in the light of experience and data collected, suggest improvements for project implementation, assess villagers' acceptance of social forestry activities, determine tree survival rates of the farm forestry  -27- component and carry out a mid-term evaluation of the project. The unit would produce six monthly progress reports, each June and December in a format agreed at negotiations and, giving details of staffing in each field unit and at headquarters; a summary of activities undertaken during the preceding six months; and targets achieved and problems encountered during project implementation. Funds would also be provided for a locally recruited consultant to advise on the design of survey studies and assist in setting up systems for project monitoring. Assurances were obtained at negotiations that the DCF in charge of the MEU and the consultant to the MEU would be appointed not later than June 30, 1983. Wood-Balance Study 3.45 No reliable information exists on the consumption and availability of fuelwood and other forest-based products in the rural and urban areas of India. This information is a prerequisite for more efficient forest development planning. A Wood-Balance study would be carried out in the State by the University of Jammu and Kashmir or any other appropriate institution The cost of the study is estimated to be Rs. 1 M (US$ 117,000). An outline of the proposed terms of reference of the proposed study is given in Item 5 of the Project File and these was agreed upon during negotiations. External Fellowships 3.46 Fourteen 8-week overseas fellowships would be provided for senior SFW staff in management and forestry extension. Total cost is estimated to be US$ 200,000. Consultants 3.47 One hundred twenty manmonths of local consultancy time have been provided in the fields of monitoring and evaluation, communication and extension for staff at the schools at Chattarnar and Miran Sahib. Total cost is estimated to be Rs. 528,000 (US$ 62,117).  -28- IV. ORGANIZATION AND MANAGEMENT Social Forestry Wing 4.01 JAK has established a SFW in its FD. To handle the increased administrative responsibility, an Additional CCF has been appointed and is directly responsible to CCF for all social forestry affairs. To cope with increased planting and maintenance programs, two social forestry Circles, covering a total of ten field Divisions, have been established. Each Circle would be headed by a Conservator of Forests. Each Division would be headed by a DCF and assisted by an Asst. CF. The ten Divisions would cover all the State's 12 districts, i.e., one Division may cover more than one district depending on the size of the forestry program to be imple- mented. Each Division would be staffed by 3 Rangers (each covering 1,400 ha of forest) who would supervise subordinate staff and be technically responsible for establishment of forest plantations. In addition, in each unit 15 Foresters (each covering 300 ha) would supervise the physical implementation of the plantation program and each Forester would be assisted by 1-2 Social Forestry Workers (each covering about 190 ha) and 9 Motivators (each covering 30 ha). A determined effort would be made by SFW to recruit and train women Motivators. 4.02 The expansion of the State's social forestry program and the establishment of a Social Forestry Wing would require two new cadres of field staff to undertake extension activities at the village and farmer level. Firstly, Social Forestry Workers (SFW) would be largely recruited from outside the Forestry Service and would have completed their secondary school education. In addition, they would be given 13 weeks of training in forestry and extension methods which would be supplemented by monthly orientation training given at the Divisional level by the DFO or the ACF. 1/ SFW would encourage village panchayats and farmers to participate in the forestry program by explaining to them the benefits to be derived. In addition, SFW would supervise planting and forest protection and visit village Motivators at least twice a month to supervise their work and solve problems arising from project implementation. Village Motivators 2/ would be based at the village level and would be recruited either from among progressive farmers or their wives and from village panchayat mem- bers. Motivators would be given a five-week training (see Item 9 of Project File) in simple communication and extension techniques and a comprehensive orientation on the project and its objectives. Basic train- ing of Motivators would be given at the Divisional level by the DFO or ACF and would be supplemented by monthly orientation in-service training. Motivators would assist in coordinating operations in village woodlot 1/ For detailed information on training of SFW, see Item 8 of Project File. 2/ 1,400 Motivators would be recruited, 1 Motivator per Village Panchayat.  -29- establishment, private forestry and strip planting. However, the main function of the Motivator would be to promote farm forestry schemes. They would explain to farmers the benefits they would derive from the estab- lishment of private plantations and keep records of individual plantings. Motivators would visit farmers (individually or in groups) at least once a month to discuss problems that may arise. If these cannot be solved satisfactorily the problem(s) would be referred to the SFW or raised at the monthly orientation divisional meeting. In addition, they would carry out simple administrative activities such as monitoring of survival rate of trees, recording research trials at the village and farmer's level and provide the linkage between the SFW and the village panchayat and farmer. Motivators would be employed part-time and receive an honorarium of Rs. 2,400 per annum. 1/ 4.03 Each Division would be staffed by a Divisional Publicity Officer (DPO) who would coordinate all publicity and communication activities in his area and be directly responsible to PO in his circle. Research would be undertaken by existing research units each headed by a DCF. A monitor- ing and evaluation unit (para 3.44) would be established and headed by a DCF. Project Coordination 4.04 Coordination of social forestry activities with programs of other government agencies at State and District levels would be achieved through two committees described below: (a) The State Policy Review Committee would meet as often as necessary but not less than once a year and would be chaired by the Chief Minister. Among its members would be the Minister of Forests; Minister of Planning and Finance; Secretary, Department of Forests; Secretary, Department of Agriculture; Secretary, Department of Panchayats; Land Reforms Commis- sioner; Labor Commissioner; Chief Engineer, Public Works Department; Chief Engineer, Irrigation; Chief Conservator of Forests; Addl. Chief Conser- vator of Forests, Social Forestry; General Manager, North Western Railway; Regional Director, Social Forestry, Jammu and Regional Director, Social Forestry, Srinagar. 1/ Although the project has budgeted for 1,400 motivators (one for each village panchayat), the number of motivators recruited would depend on the size and concentration of plantations. A larger concentration of plantations would require fewer Motivators.  -30- (b) The District Policy Review Committee would meet at least once every four months and would be chaired by the District Development Commis- sioner. Among its members would be the Assistant Commissioner, Develop- ment; Superintendent Engineer of the District; Development Manager of Railways (where appropriate); District Panchayat Officer; elected members of the District Development Boards and Divisional Forest Officers of SFW. Assurances were obtained at negotiations that the State and District Review Committees would be established not later than December 31, 1982. Provision of Training Facilities for Social Forestry Workers and Motivators 4.05 Social Forestry Workers would be trained at either of the two expanded training schools (para 3.39 and 3.40). Most candidates would be recruited from outside the forestry service, though some candidates would be recruited from amongst serving forest guards. Training in basic con- cepts of forestry would be given by existing FD instructors and training in communication and extension by locally recruited consultants (para 3.42). The training of SFW would last 3 months and would be supplemented by additional one-day monthly orientation training given at Divisional level (para 4.07). An outline of the training curriculum is given in the Project File, Item 6. 4.06 Motivators would be trained at Divisional level in small training centers, one for each Division, (each costing Rs 120,000) constructed under the project. Candidates would be recruited from among progressive farmers or their wives or village panchayat members. Each DCF would organize five-week courses which would be supplemented by regular one-day monthly orientation training (para 4.07). Provision has been made under the project for the recruitment of a communication and extension consult- ant to help organize short training courses run by DCF and other senior SFW staff and help to help to design extension programs at the Divisional level. Assurances were obtained at negotiations that the Communication and Extension Consultant would be appointed not later than June 30, 1983. An outline of the curriculum for Motivator training is given in the Project File, Item 7. 4.07 Orientation training would be given to Motivators, SFW, Deputy Rangers and Foresters. One-day training sessions (held monthly) would be given at the Divisional level by the DCF or Asst. CF to approximately 150 field staff from the division. These sessions would concentrate on prac- tical application of knowledge gained, group discussion and problems encountered in project implementation.  -31- V. BACKGROUND: HARYANA A. The State of Haryana General 5.01 The State of Haryana, with an area of 44,040 km2, has a population of about 13.0 M (1981), of which, 82% live in rural areas. Since its formation (1966), the State has made excellent progress in increasing agricultural production which plays a predominant role in the State's economy, accounting for 54% of its income and 65% of its employment. An industrial complex has recently been established in Faridabad where medium and small scale industries produce agricultural machinery and electrical goods. 5.02 Population density averages 292 persons per km2, but there is 2 considerable inter-district variation, ranging from a high of 469 per km in Faridabad District near Delhi, to a low 166 per km2 in Sirsa District in the western corner of the State. A little less than 19% of the popula- tion belongs to scheduled castes (IBRD map 16199). 5.03 The rural population is spread over 6,731 villages, each with an average population of about 1,572. Ecological differences and socio-cultural factors influence variations in the incidence of poverty between regions and different segments of the population. Nearly half of the rural population was below the poverty line in 1981 1/ In the village, traditional patron-client relationships between castes are slowly being replaced by a monetary economy and many services are today paid for in cash. Farms in general are small, with 62% of all holdings less than 3 ha. Details are given in Annex 14. 5.04 Livestock forms an integral part of village life; a household possesses, on average, 5 heads of livestock which provide milk, draught power, manure and dung cake for cooking. Livestock generally graze on panchayat owned lands that surround villages, and their feed is supple- mented with agricultural products and tree loppings. 5.05 Population pressures and the increase in livestock numbers (of which there are an estimated 7M) necessitate the continual search for food, fuel and fodder. This has resulted in indiscriminate tree-cutting and increasing erosion, particularly in the Siwalik hills in Ambala Dis- trict. 1/ Poverty line estimated at US$114.00 per capita per annum.  -32- Panchayat System 5.06 Village panchayats were first constituted in Haryana (then part of the Punjab Province) in 1939. These panchayats were reconstituted with the passage of the Punjab Gram Panchayats Act, 1952, which is still in force in the State. Panchayat Samitis (sub-district associations) and Zilla Parishads (District Assemblies) were constituted under legislation passed in 1964. The State had a three-tier system of panchayats with the village (gram) panchayat at the lowest level, the Panchayat Samiti at the intermediate level, and the Zilla Parishad at the apex. The village panchayat is a corporate body elected by the residents of a village (a village corresponding with a revenue village, or mauza). In 1973, Zilla Parishads were abolished and the functions of these assemblies have now been taken over by the line departments of government. Panchayat Samitis have also ceased to exist after the tenure of office of their members ended in 1977. 5.07 There is a wide range of activities that village panchayats can undertake. Most importantly for the project, the obligatory functions of a panchayat include the planting and preservation of trees on village common land. Government is also empowered to transfer the maintenance and management of forests and government waste lands within or near the bound- aries of a panchayat. The functions of Panchayat Samitis are now exer- cised by a Block Committee consisting of the Additional Deputy Commis- sioner, the Sub-divisional Magistrate, and the Block Development and Panchayat Officer all of whom are government officials. There are 5,250 panchayats each comprising about 1,900 people. 5.08 The State provides both administrative and financial assistance to panchayats. Under the former category, the gram sachiv (village assis- tant) acts as panchayat secretary. Further assistance is provided at the Block (sub-district) level by the Block Committee. At the State level, village panchayats are under the administrative control of the Development Department. Financial assistance is provided both in the form of grants for regular expenses (for administration) and for special works. A vil- lage panchayat also raises funds directly through house taxes and annual auctions of cultivable common land. The average annual income of a panchayat is about Rs 13,300 (approx. US$1,565). All income of a panchayat has to be deposited in a scheduled bank and accounts are audited annually by the Development Department and the State Auditor General. 5.09 Panchayat owned plantations have already been established and financed by the Forest Department (FD) on nearly 12,000 ha of land since 1977. Although this past FD practice may have been necessary to demon- strate the best use of waste lands, it has had a remarkable effect on those panchayats which have not received FD assistance and are now willing  -33- to develop plantations on degraded and uncultivable lands. This is par- ticularly the case in the southern districts of the State where most agriculturalists are faced with the problem of shifting sand dunes. The State Government and FD now recognize that establishment costs of panchayat forests must be recovered and that in future FD would recover its direct costs from the sale of harvestable produce (paras 6.05 and 6.12). For further details on panchayat organization see Item 8 of the Project File. Present Consumption of Energy 5.10 Haryana's domestic energy requirement, as in Jammu and Kashmir, is primarily met by use of wood and dung cake as fuel. Given that incomes in Haryana are somewhat higher than in most States in India, the annual requirements met from non-renewable energy sources has now reached 5% or 0.5 M tons FWE. All rural villages in Haryana are now electrified, but the relatively high cost of electricity, bottled gas, coal, kerosene, etc. preclude rapid increases in their use as a source of domestic fuel. Present average daily household consumption is about 20 kgs. of fuelwood giving an annual per capita requirement of 1.0 ton FWE. Based on these estimates, total annual domestic energy consumption is approximately 12 M tons FWE, or 11.5 M tons FWE from renewable sources. 5.11 Of the energy required to meet present day demands, the mission estimates that 75% of cow dung produced is burned, most of which is col- lected and processed by women. Thus about 30% of domestic energy consump- tion is provided from dung cake, and the remaining 70% from fuelwood. This figure equates with the all India estimate that 73 million out of 100 million tons of dung produced annually is burned as fuel. 1/ The 11.5 M tons FWE is estimated to be derived from: Amount 1/ FWE 1/ % Fuelwood and Charcoal 8 M tons 8 M tons 70 Dung Cake 8.2 M tons 3.5 M tons 30 Thus 1.6 M ha of tree plantations would be required (assuming a mean annual increment of 7 tons per ha) to meet present domestic fuel require- ments. Given the overall paucity of data on present energy consumption patterns in Haryana (and JAK), a study would be carried out to estimate more accurately energy consumption and its production (para 6.40). 1/ Economic Situation and Prospects of India, WB Report No. 3401-IN, April 15, 1981.  -34- B. Forestry in Haryana 5.12 A large part of Haryana is situated on the Indo-Gangetic plain at an elevation of about 300 meters above sea level. These central plains contain substantial tracts of saline and alkaline soils which are almost totally unproductive and merge into near desert conditions prevailing in the south west of the State and characterized by the presence of numerous low sand ridges and shifting sand dunes. The low Aravalli hills of igneous rock break the plains to the south west of Delhi, while the steep Siwalik Hills of friable sandstone located along the State boundary in the north east, rise to 1,500 meters. There are no rivers of major importance except the Jamuna which forms the eastern boundary of the State. 5.13 In all parts of the State, The seasons are winter (November to January), summer (February to May) and monsoon (June to October). Summer temperatures rise to 47