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FIFTH SCHEDULE, PESA AND FRA
PARIMAL SINGH
DEPUTY SECRETARY DEVELOPMENT BOARD
RAJ BHAVAN
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Introduction
STs in India
More than 100 million population
More than 8% share of population
Large population in States of MP, Maharashtra, Orissa, AP, Gujarat, Chhatisgarh, Rajasthan, Jharkhand
Concentrated in Fifth Schedule and Sixth Schedule Areas
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Introduction (contd)
Diversity of languages and cultural characteristics
Geographic dispersion, remoteness (Padas, Tolas/hamlets/habitations)
Particularly vulnerable groups
Lower than average performance in Social Indicators--- educational attainments, high mortality, morbidity, malnutrition.
Remote areas , poor connectivity
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Developmental issues
Displacement
MoTA esimates – 85 lakh (population 8% but total 55% of the people displaced
The question of environment vs growth
Growth …………….for whom?
Who pays the price?
“ There has been a systemic failure in giving tribals a stake in the modern economic processes…. The systematic exploitation …of our tribal communities can no longer be tolerated”
PM of India, 2009 quoted in IRMA study initiated by MoPR
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Developmental Issues
Jal, Jangal Aur Zamin
Land alienation
Widespread despite stringent laws
Rises out of the vulnerability of indebtedness
Access to Forests
Access to water resources
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Developmental Issues
Indebtedness
High Migration
Persistent poverty
Poor social indicators (Health, Education, etc.)
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ST Statistics
http://tribal.nic.in/WriteReadData/CMS/Documents/201305300323522984783TribalProfile.pdf
A ST child is more likely than the general population –To die within first day/Month/year of delivery
To be severely underweight
To be born and to live in a poor household
To not have a pucca house
To be born in a family with no or marginal land
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ST statistics (contd.)
A ST child is more likely than the general population –
To drop out early from school
To be illiterate
To marry even before the chance of growing up
To be not immunized, to be anaemic, to be not covered by health insurance
To not have access to water supply or electricity
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Constitutional provisions
Government of India Act, 1919- Backward tracts- Special responsibility for Governor-in-Council
Government of India Act, 1935- Special powers to Governor General and Governor-in-council about application or non-application of Laws
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Provisions Post-Independence (contd.)
Art. 14(4)- Reservation in services
Art 29- Cultural and Educational Rights
Art. 46-State shall promote Educational and Economic interests; Protect from social injustice and exploitation
Art. 366 defines STs
Art. 342- President, in consultation, with Governor, specify who shall be STs
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Provisions Post-Independence (contd.)
335- Consideration of Claims of STs in the appointment to services
332-Reservation of seats for STs in legislative assemblies
334- Reservation in Parliament and Assembly to continue till 40 years from commencement of Constitution
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(contd.)
243 D- Seats reserved in Panchayats for STs
243 T- Seats to be reserved for STs in Municipality
338A- 2003; 89th Amendment--- Independent National Commission for Scheduled Tribes
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(contd.)
Art. 339 – Control of the Union over administration of Scheduled Areas
Art. 275(1) – Special grant-in-aid by the Centre to the States for development in SA and for STs
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Fifth Schedule
FIFTH SCHEDULE (Article 244(1))…..Nine States…
Governor has special responsibilities for Schedule Five areas (Maharashtra 12 districts , 59 Talukas)
Paragraph 3 - Report to President ( Attorney General's opinion)
Paragraph 4 - Tribes Advisory Council
Paragraph 5 - Governor's powers of regulation and notification...
Paragraph 6 - Scheduled Areas
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Fifth Schedule (contd.)
Some important notifications issued
Important Regulations made…..
Act I of 1970 to prevent tribal to non-tribal land transfer in Agency (Scheduled tracts of Andhra / Telangana )
Need for more proactive use of Fifth Schedule
Examination of laws on the touchstone of whether they aid or impact adversely Scheduled Areas
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PESA, 1996
Article 243(M) of Constitution
Dilip Singh Bhuria Committee
Extended provisions of Part IX of the Constitution relating to Panchayats to Scheduled Areas
With certain exceptions and modifications
Onus on states to make PESA compliant laws
Defined villages and Gram Sabhas (4b)
Every habitation shall have a village
Every village shall have a Gram Sabha
In effect, every habitation can have a Gram Sabha
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PESA, 1996 (contd.)
State legislation should be in consonance with customary law, social/religious practices, and traditional management practices of community resources
Reservation of seats in proportion of population but not less than one half (4g)
Consultation before land acquisition (4i), power to prevent land alienation ( Samatha judgement of Supreme Court)
Planning and Management of minor water bodies (4j)
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PESA, 1996 (contd.)
Mandatory recommendation of Gram Sabha for Minor minerals (4l)
GS has powers to enforce prohibition (4m(i))
Ownership of minor forest produce (4m(ii))
Power to control over money lending (4m(v))
Control over local plans , resources, tribal sub-plan (4m(vii))
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PESA, 1996 (contd.)
Ensure that Panchayats at higher level do not assume power of the lower levels (4n)
State Legislature shall endeavour to follow the pattern of Sixth Schedule while designing the administrative arrangements in the Panchayats in Scheduled Areas (4o)
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Why PESA could not succeed
Awareness
Initial enthusiasm, later neglect
PESA rules , Other Acts not in line with PESA.
Convenient interpretation of central Act to make state laws in most states
The conflict about land and resources, between statement and intent
Lack of belief in the abilities of Panchayati institutions to carry out their responsibilities.
.
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Preferring giving powers to Gram Panchayats instead to Gram Sabha through convenient interpretation
Lack of strengthening Gram Panchayats through funds , functions, functionaries
The logic of devolution and decentralisation not carried forward
Building up grass root leadership which can fight for their rights
The spurious debate of “decentralization promoting corruption”
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Why PESA can succeed …………………..
PESA Rules passed by State Government
Realisation that devolution of rights and resources is necessary for development
Steps towards ownership of schemes by the community (NRHM, SSA, water supply)
Yet……..
Much more needs to be done ………
To create awareness, devolve funds, give rights
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PESA Rules
PESA Rules
Definition of village and Gram Sabha compliant with small hamlets (Rule )
Process of village formation (Rule 4 )
Composition of Gram Sabha Kosh (Rule 14 )
Standing committees of Gram Sabhas (Rule 10 )
Rules for access to natural resources and sustenance (Chapter V )
Rules for prevention of land alienation (Rule 24 )
Rules for restoration of alienated land (Rule 25 )
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PESA Rules…
Consultation before land acquisition (Rule 26 )
Planning and management of water resources (Rule 28 )
Permission of Gram Sabha mandatory for minor minerals (Rule 32 )
Provisions against exploitation of labour (Rule 35)
Regulation of intoxicants (Rule 36 )
Licence and continuance of liquor shops only through Gram Sabhas , majotity opinion of women to be considered opinion of Gram sabhas (Rule 36 to 39 )
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PESA Rules…
Management of minor forest produce by committee of Gram Sabha (Rule 41 )
Control over local markets (Rule 43 )
Control over money lending (Rule 44 )
Gram Sabha to identify beneficiaries (Rule 45 )
Certification of expenses (Rule 48 )
Social audit and monitoring of development activities (Rule 51 )
State law to be in keeping with customs, and traditional management practices in Scheduled Area (Rule 52 )
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Things to Do
1. Administrative restructuring
Mobilise Vastis/ hamlets/habitations to form new villages
Ensure that committees such as RPMC, Gram Kosh, peace and justice committee , social audit committee are formed
Try to form smaller Gram Panchayats, e.g., Nandurbar
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Things to Do …
2. Training
Train extensively about the PESA Rules: Both staff and Gram sabhas ( Remember: the base for training is GS not GP)
RGPSA; But since PESA is multi-faceted converge training with all other schemes.
Build training convergence with State Livelihood Mission and schemes like MGNREGS
Build PESA into ICDS, Health, Education training
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Things to Do…
3. Fisheries
Transfer water bodies to Gram Panchayats
Ask actively for funds from TSP for fishery , GR has been changed accordingly
Fishery department is understaffed, need to involve Gram Sevaks
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Things to Do…
4. Minor Forest Produce
Ensure that RPMC and the Forest Rights Committees under Rule 4(1) e in FRA are formed
Ensure that all decision making is by Gram Sabhas
Provide value addition structures and market linkages through funds and schemes- MVM, TSP, cess funds
Training in making micro plans and in access to forests
Remember : Bamboo and Tendu is property of Gram Sabhas, read relevant GRs
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Things to Do…
5. Land Alienation
Organise Gram Sabhas to identify illegal land transfers from STs to non-STs
Review land records and ensure farmer’s names are correctly recorded
Put before Gram Sabha all matters of mortgage
6. Prohibition
7. Control of Usurious money lending
8. Identification of Beneficiaries of Government Schemes
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Things to Do…
9. Approval of programs and schemes
10. Certification of expenses/ Utilisation Certificates
11. Social Audit of all Social Sector Schemes ( Periodic and Recurrent)
12. Rule 52- Laws to be in keeping with customs and practices of the community
Remember: All the above are de facto transferred subjects
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Forest Rights Act
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Scheduled Tribes and Other Traditional Dwellers (Recognition of Forest Rights) Act, 2006 (FRA)
• Published in 2007
• Addresses historical injustice
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Historical Injustice
• Series of laws in colonial times
• Dispossession: breaking of links with water, forest and land
• Large dams, Big projects
• Land Acquisition , concept of private property
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BASIC PRINCIPLES
• Rights include responsibilities
• STs & OTFDs have been traditionally conserving forest ecosystems
• FORESTS & PEOPLE CAN EXIST TOGETHER
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THE ACT
Section 3 defines “Forest Rights”
Forest Rights both individual and Community
For both STs and OTFDs
Cut off date 2005
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Rights Individual Forest Right (IFR) upto 10 acres (4
hectares)
IFR for self-cultivation
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Community Forest Rights (CFRs)
Two types
CFRs (under section 3(1); True Community Rights
CFRs (under section 3(2)
Infrastructural rights
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CFRs under Section 3(1)
Nistar
Right to MFP
Fishing and other products of water bodies
Conversion of Pattas into legal rights
Right to protect, regenerate or conserve or manage any community forest resource
Rights of access to Bio-diversity
Right of community to intellectual property and traditional knowledge
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CFRs under section 3(2)
13 community facilities
Schools, dispensary or hospitals, anganwadis, fair price shops, drinking water supply etc.
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Section 5
Right to protect wild life, forest , and biodiversity
Right for Gram Sabhas to regulate access to community forest resources
Stop any activity which adversely affetcts the wild animals, forest and biodiversity
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All rights available also in National Parks, Protected sanctuaries unless……….
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……. they are declared inviolate by following due process
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Duties of forest right holders
Protect wild life, forest and bio-diversity
Prevent destructive practices
Comply with the decisions of Gram Sabha
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PROCESS
Convene Gram Sabha/Sabhas Forest Rights Committee Chairperson and Secretary
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Filing, determination & verification of claims (Rule 11)
Verification of claims
MARK CUSTOMARY BOUNDARIES with the help of Gram Sabha including elders
FRC shall record findings; present before Gram Sabha
If more than one Gram Sabha and conflict, joint Gram Sabha
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Evidences (Rule 13) More than one evidences
Public documents, Gazetteers census, survey and settlement reports, maps, micro-plans
Government authorised documents
Quasi judicial and judicial records
Research studies, documentation of
Statements of Elders other than claimants
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What more needs to be done
Communities require funds for value addition, marketing, etc.
Communities require hand holding and non-adversarial positions to be taken by government departments
Communities require training in silvicultural practices
(At the same time , they have a lot to share and teach us )
Akola Collector residence
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Challenges
Change in mindset of officials from “Only we can protect forests” to ………
Spreading the language of rights deep inside the forest dwelling communities
Talking about shared responsibilities
Avoiding any attempts to sabotage
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Policy for tribal communities- Dos and Dont’s Avoid One size fits all approach
Provide community ownership -----of schemes, manpower, resources
Decentralise ------ functions, funds, functionaries.
Invest heavily in health, education, social services.
Consult
Respect and recognise ownership of land, water, and forests.
“Small is beautiful”---- To the extent possible avoid disruption, displacement, and disenchantment.
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Thank You