MAHARASHTRA NATURAL RESOURCE MANAGEMENT PROJECT
DRAFT TERMS OFREFERENCE FOR EVALUATION OF JOINT FOREST MANAGEMENT
1.Background:
1.1 Forests in Maharashtra state, as also in many parts of India, are among the most important natural resources, which have played a fundamental role in supporting the livelihood of the people, mainly the poor rural masses. Historically, the forests provided the basic resources for survival and economic development. However, in recent years factors such as population increase, incidence of poverty and industrial growth, suggest that demand trends are far outstripping the forest’s natural ability to sustain these frequently conflicting needs. Even with the increased pace of plantations, the forest resource supply is not likely to meet demand. This will result into accelerated degradation of the state’s forest resource.
1.2 On the other hand, pressure is also mounting to recognise the forests as source of other social and environmental services., Forest resources in Maharashtra, as per changing public expectation, should be managed- not just as supplier of raw materials- but as means to secure poverty alleviation for the forest-fringe dwelling communities, as habitat for wildlife, for recreational/aesthetic uses and for protection of ecological functions. The changing social values are forcing the Public Forestry Institutions (PFIs) in Maharashtra to reorient the nature and scope of their role as forest resource managers.
1.3 In early nineties, the Maharashtra Forestry Administration was supported by the World Bank (through the International Development Association) through Maharashtra Forestry Project (MFP) to improve the performance of the forestry sector of the state as a whole. The project was implemented during April,1992 to March,2000.1.4 Participation of local people in various forestry activities like Nursery, plantation, harvesting works, etc. has traditionally been limited to providing employment only. However, their involvement in the true sense through participation in the forest management as laid down in the National Forest Policy,1988, was introduced in Maharashtra State with the advent of World Bank Aided Maharashtra Forestry Project in the year 1992 as a sequel to the objective related to generation of rural income and improving equity in rural areas through increased community participation.
1.5 The implementation of Joint Forest Management (JFM) programme has been based on a long term strategy supported by a Government Resolution of 16th March,1992, setting out the governing legislation and benefit sharing arrangements by the forest dependent village communities. The programmes, though introduced late during 1996-97 during Mid Term Review (MTR) of the MFP was, implemented in 602 villages in the state against a target of 200 villages. This programme has contributed significantly by mobilising VSSs support to protect about 2,00,000 Hectares of forest and raising plantation over an area of 25,671 ha.
1.6 Due to fairly successful implementation of JFM in 602 villages during Phase-I of the Maharashtra Forestry Project, a conducive working relationship has developed between the local people and the Forest Department and degraded Forest lands have been regenerated successfully in some villages. However, it will be necessary to continue the various activities, at least for another term of 5-6 years, so that Forests start giving benefit to the people and the gains made under the previous Project are consolidated. The implementation of JFM has provided alternate employment opportunities to the Forest dependent people. Some income from Non-Timber Forest Products like fodder grass and gum etc. has already started flowing to the people. The landless and the poor, especially the Tribals are looking for the continued support. Withdrawing support to the on going activity, particularly at this stage, will adversely affect the poor and sustainability or the programme will become difficult.
1.7 It is in this backdrop that Maharashtra Natural Resource Management Project Phase II is being planned, where JFM approach would be further refined so that, it becomes a programme for rural poverty alleviation.. To have better focus on poverty alleviation, it is proposed to take up this Phase II, Project in 14 districts, where there are maximum number of poor Tribals and Forest dependent people. (List of districts is enclosed in Appendix-1). The focus is now shifted from Forest protection and regeneration to involvement of local villagers for poverty alleviation through "Sustainable Natural Resource Management". The Project seeks to achieve the objective of alleviation of rural poverty in the forest fringe Villages through improving the productivity of forests for sustained growth and increase in income and by strengthening the institution of Vana Samrakshana Samiti (VSS) through Participatory JFM approach.
2. MAHARASHTRA NATURAL RESOURCE MANAGEMENT
PROJECT. (PHASE-II)
2.1 The overall goal of the M.N.R.M. project is "Rehabilitation, maintenance & utilization of forest resources on sustainable basis for the benefit of the community".
2.2 The development objective for the Maharashtra Natural Resource Management Project (MNRMP) is "to enhance livelihood means of forest fringe communities on sustained basis through participatory natural resource management". It is envisaged that the forest should be managed for conservation and productivity enhancement through active participation of the forest fringe poor communities in micro planning, implementation and monitoring processes aimed at forest conservation and natural resource management.
2.3 The project aims at expanding the participatory forest management arrangement in mainly the forested regions of Maharashtra inhabited with majority of the forest dependent communities facing high and growing incidence of poverty due to rapid degradation of the valuable forests.
3. Project components and Activities
The major components and activities of the project is given in the table below:
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4. Project components and Activities to ensure Poverty alleviation:
The Project envisages the improvement of socio economic status of the villages. The steps contemplated in this direction are.
Creation of enabling environment for PFM.
Capacity building for PFM.
Seting up of sustainable village institutions for PFM
Creation of complimentary livelihood support opportunities.
Income generation activities.
Creation of community assets.
Improvement of forest resource management.
Entry Point Activity.
Improvement works in existing natural forest stands.
Augmentation of water resources.
Supplemental regeneration in degraded forest areas.
Strengthening of participative forest protection.
5. NEED FOR EVALUATION OF JOINT FOREST MANAGEMENT.
Since the main development objective wise of the Maharashtra Natural Resource Management Project is to enhance livelihood means of forest fringe communities on sustained basis through participatory or Joint Forest Management. Hence, sample evaluation studies of the J.F.M.’ done in 602 villages covered during the first phase and analytical evaluation of the policy frame work in this regard which may need suitable modification to ensure the success of the programme, is essential before the preparation of the project implementation plan.
6. OBJECTIVES OF EVALUATION OF JOINT FOREST MANAGEMENT.
6.1 To identify the stake holders in the participatory Maharashtra Natural Resource Management programme and to assess and define their roles and responsibilities.6.2 Identification of desirable entry point activities and their prioritization as perceived by the stake holders.
6.3 To evaluate the usufruct sharing mechanism from the natural resources developed with the participation of village communities and to suggest improvements for ensuring achievement of the objectives.
6.4 To suggest a mechanism for establishing a two way communication system for maximising benefits that can flow to the stake holders by generating awareness and understanding about their roles and responsibilities.
6.5 To assess the role of women in participatory Natural Resource Management and to suggest measures to ensure gender equity for sharing of benefits.
6.6 To assess the impact of benefit sharing mechanism of participatory Natural Resource Management on the holders of customary rights viz. Burads and Nistari and other stake holders who are currently dependent on Natural Resources in an unorganized manner like head loaders, cultivators, graziers like sheep and goat herders etc. to assess the likely points of conflict and to suggest conflict resolution measures.
6.7 To study the existing policy and legal framework and other related aspects of community participation in Joint Forest Management and suggest measures for effective realisation of project goals and to suggest conflict resoluturi mechanism.
6.8 To assess the present level of motivation & awareness of JFM concept and capacity of the village communities and the Forest Department staff to implement the programme and to suggest mechanism for capacity building including package of "training, incentives and rewards" etc.
6.9 To suggest methodology for concurrent evaluation and monitoring of the J..F.M. programme.
7.1 The current NRM project is being planned for 14 districts. Hence, it is suggested that One sample village may be selected in each district for the purpose of the J.F.M. evaluation which should include some villages where the programme got good response and considered very successful, some villages where the programme was considered as fairly successful and some villages where it was considered as a failure. Thus, we shall have data about all the districts and we can have before us the reasons as to why the programme was successful, partially successful or failure and remedial measures can be suggested for ensuring the success of the proposed project. This will mean about 3% sampling intensity.7. SCOPE OF J.F.M. ASSESSMENT.
7.2 The approach will be to have extensive consultation with stake holders at village level and focuses on group discussions, individual house hold interviews, with a view to establish sufficient information and documentation.
7.3 The information may be complied under the following categories
a. Key participation or JFM issues.
b. Capacity building and organizational issues.
c. Participatory framework.
d. Mechanism for monitoring & evaluation .
8. TASK IN EVALUATION OF J..F.M.
8.1 A list of proforma evolved by the central evaluation unit in the office of the Principal Chief Conservator of Forests is enclosed in Appendix – III.
The consultant can suggest suitable modifications to suit the objective of the evaluation studies of J.F.M.
8.2 In addition to the survey of opinion of members of F.P.C’s comprising of poor and vulnerable groups who are directly dependent on natural resources, opinion of Government staff at field level F.G., Forester, R.F.O. A.C.F. & Dy.C.F; panchayat Raj Institutions, NGOs working in the region, must be recorded so that their suggestions for ensuring the success of the programme can be used for strategic planning and project preparation process.
8.3 Project specific information strategy shall identify key social actors and their interactions should reveal their problems, constraints and needs and ideas for alternate solutions viz. to problems of head loaders, problems arising out of ban/restrictions on grazing etc.
8.4 The methodology for primary data collection should be participatory, interactive and based on two way process of communication using participatory Rural Appraisal Techniques (including structural interviews & focus group discussions)
8.5 Definition of Participation Framework
8.5.1 Formulate participation strategy. The JFM evaluation incorporates two types of participation. First there is the participation of the poor and vulnerable groups, which is a principal objective of the evaluation. Second, there is the participation of the broader group of stakeholders – governmental and non-governmental organizations, and other is partners – in project strategy design and implementation. The broader stakeholder participation is critical for attaining the participation of the poor and vulnerable groups, and both levels of participation are important in developing support for the specific project proposal
8.5.2 Define implementation Arrangements. As feed back from intended beneficiaries and others is desirable and important it is equally important that the project can respond to this feed back. Therefore, JFM evaluation must propose arrangements for implementation of the project in a manner that is transparent, flexible and participatory.
8.5.3 On the basis of the stakeholder dialogue to ensure ownership and commitment to JFM policy. JFM evaluation study will define the specific responsibility and monitorable contribution of each stakeholder group (e.g. local government agencies, NGOs, Gram Panchayat and Forest Department).The dialogue will also help to determine implementation options including institutional changes, capacity building and incentive etc. The implementation plan will also include a joint evaluation of the socio-economic benefits and risks, including potential conflicts and costs.
8.6 Evaluation of JFM organizational issues.
8.6.1 Identify blockages to equitable access. The poor and vulnerable groups (e.g. ST/SC population, women, youth, older people) may encounter difficulties in accessing project and other resources. The JFM evaluation therefore, must determine whether systematic, structural blockages exist, and if so, propose mechanism to overcome them.
8.6.2 The JFM evaluation should focus on the sustainability of the JFM programme based on proposed participation arrangement that can help mobilize the stakeholders to achieve the development objectives.
8.6.3 Recommend strategies of strengthening the FPCs through capacity building exercise. Local-level and informal rules – norms, value and belief systems that shape the attitudes and behavior of social groups may affect project implementation arrangements. The JFM Evaluation exercise will, therefore, not only identify whether structural blockages exist, but also propose modification to existing legal and policy arrangements to overcome them.
8.7 Establishment of Mechanism for Monitoring and Evaluation.
8.7.1 The inclusion of monitoring and evaluation (M&E)
procedures is mandatory for Bank financed projects. JFM evaluation scheme
provides input to the M&E components by focussing on inputs, processes,
outputs and outcomes that pertains to the social development objective of a
project.
9 JFM Evaluation Methodology:
9.1 For evaluation of JFM, primary data would be collected though quantitative and qualitative surveys using formal and informal sources. Using Participatory Rural Appraisal techniques (including structured interviews and focus group discussions) relevant data/information will be collected from house holds, different social groups, VSS members, local institutions, concerned Government Officials at Village, Taluka and District level, NGOs and other identified groups in the representative Sample population in the Project area. Information would also be collected from secondary sources for correlating the findings from primary data. Baseline information would be established for the village and VSS selected for the study. The data collected should be computerized so that it can be easily integrated into the Project Monitoring & Evaluation system. The consultant, in their proposal, should indicate the sampling methodology for beneficiary assessment, PRA exercises and group discussions.
9.2 Meetings would be organized with stakeholders to share the information. Consultation will be held through holding workshops with project stakeholders at different levels- VSS, Taluka, district and state level.. All consultations will be well documented.
9.3 Method of Sampling:
The N.R.M. Project is top be implemented in 14 selected Districts of Maharashtra State in about 3000 forest fringe villages. Keeping the quantum of work and the time frame in view, 1 village in each district should be covered for JFM out of the villages where JFM has been reported as successful, partly successful and failure during the Phase-I of Maharashtra Forestry Project. Thus, in all 14 villages shall be taken up and randomly selected to eliminate any bias but covering all the eco-zones in the target area of the project.
9.4 Compliance with Operational Policies and Directives:
The studies should be conducted in accordance with GOI, GOM policies and then World Bank operational policies and directives. The Consultant should become familiar with the policies and directives and ensure that the JFM Evaluation study fully addresses the policies and directives.
10 Outputs of JFM Evaluation:
The Output of JFM Evaluation will be in the form of inception report, issues brought out in the workshops and a final report incorporating all the suggestions that will be useful for preparation of the Project document. It should describe the Social situation in the villages, resource base, legal frame work for the J.F.M. for effective management of natural resources, social and economic stratification, sources of livelihood and skills for different social groups. There would be evaluation of role of on women and other vulnerable sections. It should contain recommendations for Project design reflecting the needs and views of the interest groups at different stages of the Project cycle and develop guidelines for preparation of plan of action to address the issues relating to women, other disadvantaged groups and indigenous people. The following out puts are specifically expected from the study.
a Participative and consultative strategies.
b Base line information and communication strategy,
c Strategy for initiating JFM – Entry Point Activities..
d Policy guidelines and entitlement frame work for usufruct
sharing – including suggestions
for
amendments.
e Provide guidelines for conducting concurrent monitoring
& evaluation at VSS level during the course
of project implementation.
f The final report should be in the format given in
Appendix II.
11. 0 JFM Evaluation team:
The team of experts engaged for Social and Environmental
Assessment should be a multi disciplinary team and should include:
1. a social scientist with exposure in Forestry sector.
2. a Forester having good experience in Forest management techniques and JFM.
3. a professional in rural development with practical experience of working on rural
development issues.4. an expert in community mobilization and organization and
12.0 Time Schedule. The entire process of the J FM evaluation is expected to take about four months, including field work.
Activities & Schedule
In summary, the project would primarily involve:
(a) Frequent Contact/Consultation. The Consultant
will be in frequent contact with the Forest Department, Government of
Maharashtra and designated representatives, and with the World Bank and
designated representatives.
Timing:
Throughout the JFM Evaluation process.
(b) Consultative Meetings. Public consultation with
groups in the region impacted by the project, including potential project
beneficiaries, NGOs, academics, etc.
Timing: Throughout the JFM Evaluation time-frame.
(c) Field Visits. The Consultant will visit the concerned district at least once before submission of the final report to collect and validate information, and develop fact sheets and case studies as part of the project. The schedule and scope of these visits can be determined in consultation with the Forest Department, Government of Maharashtra.
Timing: Before submission of Interim report unless agreed upon otherwise with Government of Maharashtra.
(d) Collection and Analysis of Data & Reports. The Consultant shall uti9lize the information and reports gathered from the Government of Maharashtra, the World Bank and other sources (including other development agencies, institutes such as the Central and State Institutes, NGOs, journal articles, etc.) to present useful maps and tables and to outline lessons learned from previous and ongoing projects on JFM related issues.
Timing: Throughout the JFM Evaluation process.
(e) Seminar. The Consultant will present a summary of the EA and the SA at an appropriate forum to be decided in consultation with Government of Maharashtra and the World Bank.
Timing: Within two weeks of submission of the final reports.
13.0 PRODUCTS & SCHEDULE
(a)Inception Report. Inception report describing methodology, progress, outline of final report with brief description of each section. In addition, brief description of how environmental and social issues will be integrated in the JFM and Evaluation process. This report will be rapidly reviewed by the Government of Maharashtra and the World Bank and comments provided within a fortnight.
The Inception Report is due on (within four weeks of start of assignment)….
(b)Interim Report describing methodology, progress, summary of current recommendations and a table of contents and outline and final JFM Evaluation with description of each section.
The Interim Report is due on (within eight weeks of start of assignment)….
(c) Draft Final Report. The Consultant will produce a final JFM Evaluation report as outlined in this TOR. The reports should be developed in a clear, logical and readable manner. Suggested outline of the report is given in Annex-II. This will include an executive summary of not more than 15 pages. Comments will be provided by the Government of Maharashtra and the World Bank and should be addressed by the Consultant. The Consultant will also submit any additional material that was collected as part of the project that may be of use to the proposed project. An electronic version of the reports will also be submitted (e.g. in MS Word format) for dissemination and discussion purposes.
The Draft Final JFM Evaluation Report is due on (3.5 months after start of assignment)….
Final JFM Evaluation Report. Draft final modified as per comments.
The Final EA and SA Report is due on…( 4 months after start of assignment)
14.0 THE PAYMENT SCHEDULE
Sr. Mile stone Time frame Schedule for payment.
No
_____________________________________________________________________________(1) Entering into agreement 20% of contracted amount
against Bank Guarantee.(2) Inception report Four weeks of 20% of contracted amount
entering into against Bank Guarantee.
agreement.(3) First progress report Eight weeks of 20% of contracted amount.
entering into
agreement(4) Draft final report Fourteen weeks of 20% of contracted amount.
entering into
agreement.
(5) Final report Sixteen weeks of 20% of contracted amount.
entering into
agreement.
______________________________________________________________________________
15.0 RESOURCES AVAILABLE15.1 The Consultant will be extended the full support of the Project Preparation Team created for the proposed Maharashtra Natural Resource Management Project. The Government of Maharashtra and the World Bank, through their designated representatives (see Annex V), would pr0vide data and information that would be relevant to the preparation of the JFM Evaluation (including documents from the past, ongoing, proposed projects in the region and other relevant information), identify contacts in the project states, and facilitate consultation with agencies, affected groups, potential project beneficiaries and others.The Consultant would be responsible for contacting the individual identified and synthesize and analyze the information available.
15.2 Non public information that the Consultant will be privy to from the Government of Maharashtra and the World bank will be returned after the completion of the EA and the SA and confidentiality of such information will be maintained. The Consultant involved in EA and SA. Development may become ineligible for involvement in this project, if there is an issue of conflict of interest as determined by the Government of Maharashtra or the World Bank.
15.3 The Central Evaluation Unit in the office of the PCCF M.S. Nagpur has also done some evaluation study vide Evaluation report 422 which can also be taken into account .
15.4 All C. F.’s in charge of the 14 districts have been instructed to compile the information about J.F.M. villages, where it has been found to be successful , partly successful and failure. The consultant can make use of this as the basis for selection of village for undertaking evaluation study in these districts.
APPENDIX-I
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APPENDIX II
SUGGESTED OUTLINE OF THE SOCIAL AND ENVIRONMENTAL ASSESSMENT
FINAL REPORT.
The JFM Evaluation Report will include a clear and concise
executive summary, and sections outline below that describe the various issues
associated with the proposed project in a regional context. Data that is
relevant to the consideration of JFM related issues should be attached as a data
annex. The report (with all graphics in common formats) should also be made
available to the Client in an electronic format.
Executive Summary (15 pages)
Introduction
Project Description
Baseline Social and information
Lessons from Previous Project-
Analysis of reasons for
success or failure .
JFM organizational issues
Participation and Consultation Strategy
Institutional legal and Policy Issues related to JFM
JFM Action Plan – with recommendations in relation to J.F.M.
components for the N.R.M. project.
Monitoring Strategy and methodology for concurrent evaluation
of JFM by FPC’s and facilitators.
Maps
Tables/figures/graphs/photographs
ANNEXURES
Fact sheets – Project Components
Case Studies
Inventory of Other Plans and Projects of Relevance
Data Annex
Information sources/bibliography
APPENDIX - III
KEY CONTACTS.
Forest Department :
Social Forestry Department,
Forest Development Corporation of Maharashtra Ltd.
Overall JFM Evaluation Contacts as Government of Maharashtra.
Primary JFM Evaluation Contacts at Government of Maharashtra.
State-level Contacts:
To be determined…
The World Bank.
JFM Evaluation related Contacts at the World Bank.