Forming g the Basis for Integration g of Local Climate Governance into Development Plans for Resilient Livelihood Transformations in Bundelkhand region: Two Opposing Perspectives Development Studies Association (DSA) Annual Conference, September 2009 Paper Author Shailly Kedia Resources and Global Security Security, The Energy and Resources Institute (TERI) New Delhi, India NOTES •This p paper p has been submitted under the Panel 1, Re-imagining g g development p under climate change: g Urgency, politics and transformations for the DSA Annual Conference 2009, Contemporary Crises and New Opportunities. •The research findings were a result of individual research and field support received by Kori Vikas Manch Electronic copy available at: http://ssrn.com/abstract=1604180
This paper benefits from the support provided by Bundelkhand social activist Mr. R.N. Varma of Kori Vikas Manch, Jhansi, U.P. Bundelkhand. I would also like to take this opportunity to thank Dr. Rajendra Singh (Geography Department, Bundelkhand University) y for his g guidance and Mr. Ramakant Varma (Bundelkhand Chamber of Commerce) for extending kind cooperation that benefitted this research. DSA, DFID and University of Ulster for making it possible to present the findings of the research. TERI for providing me a platform for future research.
Electronic copy available at: http://ssrn.com/abstract=1604180
Background for development in current environmental and socio-economic i i Crises C i
Bundelkhand region in Central India
Image by WaterAid
Bundelkhand region as a unit of Analysis • • • •
Geographical Socio economic Socio-economic Agrarian Cultural
Climate Impacts p in Bundelkhand • Results of forecasts provided by United Nations Institute for Training and Research (UNITAR) indicate that temperatures by the end of this century are likely to be higher in the range of 2-3.5° C for Bundelkhand region. • Monsoon precipitation is likely to shift from July to August and winter i temperatures to become b variable i bl ffrom the h 1960-1990 scenarios. • Yields of wheat, a staple crop in Bundelkhand region may be affected ff d negatively i l (25 ( percent to 50 percent). ) • In the long-run by the end of this century, GCMs predict that the region is most likely to experience climate extremes such as increase i consecutive in ti d dry days d and d fluctuations fl t ti iin rainfall i f ll iin th the fform off precipitation extremes.
Japanesse High Resolu ution Models, projections for 2 2100
Agriculture and livestock sectors is set to face climate extremes
Total Population (‘000)
Below Poverty Line (BPL) Population (%)
Work Participation Rate (%)
Marginal Workers (%)
2004
2008
2004
2008
2004
2008
2004
2008
Banda
2 055 2,055
2 197 2,197
50
54
40
40
15
17
Hamirpur
2,223
2,342
52
56
41
41
15
18
Jalaun
2,386
2,516
26
19
36
37
13
16
Jhansi
2 471 2,471
2,655
34
32
40
41
13
15
Khajuraho
2,297
2,454
43
44
42
43
15
17
Sagar
2,072
2,213
57
58
40
41
11
13
Tikamgarh
2,056
2,224
50
53
45
46
14
16
Damoh
2,257
2,399
56
57
44
45
13
16
Bhind
2,195
2 306 2,306
30
33
40
48
13
16
Satna
2,004
2,168
53
56
40
40
12
14
(Sourcce: Compiled from Govern nment of Ind dia websites)
Demographic outlook
Chang ge in totall number r of cultivattors 15
10
5
0
-5
-10 Districts (Sourcce: Compiled from Govern nment of Ind dia websites)
Negative Impact in agriculture
Climate Impacts and the livelihood sector •
•
•
Livelihoods in the region is almost exclusively based on agriculture. Agricultural production in Bundelkhand has been continuously decreasing for the last eight years and today the region is producing even less than half of its capacity (Jain, 2008). The crisis of water scarcityy has always y existed but the last four years has seen climate extremes in the form of frequent droughts and floods that has destroyed crops and undermined social security as well as most of the agriculture in the region is rainfed (Gupta, (Gupta 2009) 2009). Overexploitation of resources coupled with environmental conditions that have cause wide scale crop failure has caused wide scale migration to urban areas. In 2008, urban migration i i was 30-50%, % one off the h hi highest h rates iin IIndia. di
Developing a framework for local climate governance for longterm sustainability by leveraging livelihood schemes and programmes
Livelihoods and social safety nets and climate governance interventions • Impacts of climate change and variability in the tropics calls for adequate agricultural research, alternate livelihoods and credit mobilization in order to improve the capacity of farmers to adapt d t tto climate li t change. h • Required adjustments (such as substituting crops, introducing or intensifying irrigation, and modifying field operations such as tillage or pest control) may be too costly especially for small and d marginal i l ffarmers.
Proposed local climate governance framework for resilient livelihoods transformation (Source (literature review): DFID Sustainable Livelihood Framework (1999); Betsill and Buckley (2004); Brown (2002); Devereux (2001); Emerton (1999); Lipshutz (1997); and O’Brien, Goetz, Scholte and Williams (2000))
State supported schemes for development of livelihoods assets such as natural capital, it l social-political i l liti l capital, human capital, physical capital and financial capital
Resilient Livelihoods Multi-stakeholder participation for accelerated dissemination of best practices at regional levels
Decision support environment that integrates local climate information and knowledge into informed solutions
Key livelihoods schemes and welfare programmes in Bundelkhand region •National Rural Employment Guarantee Scheme (NREGS) •Self Help Groups (SHG) income scheme •Swarna Jayanti Gram Sarojgar Yojana •Bundelkhand Drought Prone Area Programme (DPAP) •Bhoomi Sangragshan Yojana (Earth Preservation Programme) and Hariyali Yojana (Greenery Programme) •Vidhayak Yojana (State Parliamentary Representative Programme)
Case NREGA: Salient features of public works generated in context of discussion • Types of works generated under the NREGS should have a potential for creating public assets • They The are are: ▫ ▫ ▫ ▫ ▫ ▫ ▫ ▫ ▫ ▫
Water Conservation Works Rural Connectivity Water Conservation and Water Harvesting Renovation of Traditional Water Bodies Land Development Provision of Irrigation Facility to Land owned by SC and ST, Beneficiaries of Land Reform, Reform Beneficiaries of IAY Drought Proofing Micro Irrigation Works Flood Control and Production Any Other Activity Approved by MRD
Case NREGA: Potential as a social safety net (Shah, Planning Commission, 2007) • Not merely provide relief in times of distress but move towards long-term planning and action for drought and flood-proofing of Indian agriculture. • Lead to shift in the economy on to a more sustainable growth path, which is less vulnerable to the vicissitudes of nature by effective development of resources through public works generated. • Act as an effective instrument for reducing poverty by developing social public assets. infrastructure and p • Make people independent from this state sponsored employment guarantee as the condition of their farms improves, people will no longer need to look for work under NREGS. • The expenditure incurred on the employment guarantee would be noninflationary i fl i because b iit will ill spur agricultural i l l growth h upon whose h foundation a whole range of sustainable livelihoods could be built. • Facilitate successive rounds of private investment that in turn would set up a multiplier of secondary employment opportunities
Pragmatic g Analysis y • The democratic functioning of SHG schemes and other livelihood schemes have seen increased mobilization of credit dit by b b bankers. k • …there has been increased recognition by formal credit structures of the self-management capabilities of the poor and the linkup between the two has entailed advantages to both systems (Grameen Bank official). • Enormous opportunities exist for synergizing schemes like the NREGS with ongoing agroforestry projects for as these present a high potential for contributing to mitigation and adaptation to climate change. According g y has the p potential of to a NREGA official, agroforestry sequestering 1.6 million ll tonnes off carbon b and d generating more than 200,000 works at the same time.
Example NREGA - Pragmatic Analysis • NREGA is now seen to be emerging that would in turn further enhance livelihood assets: social capital, natural capital, human capital, physical capital and financial capital. • Social capital formation would result from entitlements that have been conferred on the most vulnerable groups through building capacity among them to articulate needs and negotiate their rights and physical capital through NREGS works has the prospective for improving productivity of land and rural connectivity. • Natural resource management related jobs such as afforestation, repairing of water tanks, drought proofing, flood proofing, water conservation help cope with climate change stress stress. With multi multistakeholder participation in these democratic processes along with social awareness would in turn strengthens local capacity for planning and decision-making of local bodies like the Gram Sabha and state development authorities. authorities
Example NREGA - Pragmatic Analysis ( (contd…) ) • •
NREGA works are decided in Gram Sabhas (Village meetings). In theory promote a process for deliberative democracy 1)
•
Fully engaged in developing management strategies as a means off building b ildi a constituency i ffor the h resource management problem). 2) They must agree upon and fully understand the consequences of making decisions. decisions 3) Agree upon the processes for making decisions.
In case of NREGA this process facilitated by local NGOs and improved performance of PRIs is already successful in case of Kerala.
S.No.
Department/ Ministry
Technical Wings
Contributions to NREGA
Schemes
1
Agriculture
ATMA,KVK, CSIR, ICAR, State Agriculture Universities
Rashtriya Krisi Vikas Yojana (RKVY), National Food Security Mission (NFSM), National Watershed Development Programme for Rainfed Area ((NWDPRA))
2
Horticulture
Technical Support Group
3
Animal Husbandry
Dairy Development Board Fisheries
a) Technical knowledge to prepare shelf of project, monitoring b) Technical knowledge to enhance agriculture productivity c) Capacity building of g and NREGA functionaries on agriculture allied activities d) Resource mapping for rural development a) Technical support for plantation b)Capacity building and subsidies for horticulture Technical support for fodder p and fi sh p production development
4
Water Resources
District Watershed Development Unit (DWDU)
Value addition to NREGA works
5
y Rajj Panchayati
Gram Sabha and Zila Panchayat
a)) Support pp in decentralized p planning g b)) Value addition to NREGA works
6
Land Resources
Value addition to NREGA works
Watershed Development Programme under DDP, DPAP and IWDP
7
Forest and Environment
District Watershed Development Units(DWDU) Forest Dev. Agencies (FDA)
National Afforestation Programme (NAP)
8
Human Resources
9
Health & Family Welfare
a) “Panchayat Gram Van Yojana” for community land involving PRI’s should be part of NREGA perspective plan b) silviculture, land dev, fodder fuel Literacy programme at NREGA worksites Health awareness, sanitation campaign, nutrition input at NREGA worksites
State resource Centre Primary Health Centre
National Horticulture Mission (NHM)
Fodder Development SchemeGrassland Development p including g grass reserve RRR, CAD & WM, Dugwell recharge, groundwater management, AIBP, fl ood control, Farmers Participation Action Research Programme (FPARP) g Grant Fund ((BRGF)) Backward Region
National Literacy Mission (NLM) National Rural Health Mission (NRHM)
Constitution of Technical Consortium, NREGA, 2009
Convergence with C ith other th state t t implemented programmes
Critical Analysis y • Current local climate governance for Bundelkhand region there is noted absence of local epistemic communities who share a common understanding of the scientific and political nature of the specific crisis of climate change vulnerabilities in the Bundelkhand region. • There is much scope to create a scientific consensus and solutions f the for h iissue at h hand, d to which hi h policymakers li k can turn to while hil integrating them into development schemes. • Large-scale migration shows how the aims of rural schemes could not be b achieved hi d and d there h iis need d ffor urban b ffocused d programs. Recent demographics trends of migration show that rural to urban migration in Bundelkhand region is 39 percent per year, much higher than the national average of 11 percent. percent • Knowledge power-play (rural-urban divide)
Example p NREGA – Critical Analysis y • Largely seen as a employment programme only. • Poor targeting and programmes tend to lose that section of the population that is best placed to make the targeted programmes work for long term sustainibility(Hirschman 1970) and hence benefits for the poor end up being poor benefits ((Drèze and Sen 1989). 9 9) • Construction of such small water harvesting structures on land owned by SC/ST beneficiaries in the scheme have ended up as pits that have neither the potential of water retention or harvesting and implementing agencies seem to have harvesting, inadequate technical knowhow (Singh, 2009). • Ineffective allocation of works for building long-term durable g In the flood-prone p belt of and sustainable assets. Eg. Maharashtra, not even one percent of the works fall under the “Flood control and Protection” category.
Example NREGA – Critical Analysis (contd…) Approved Outlays (Rs. in Crore)
Scheme Sampoorna Gramin Rozgar Yojana National Food for Work Programme National Rural Employment Guarantee Scheme Pradhan Mantri Gram Sadak Yojana
2004- 2005-
2006- 2007- 2008-
1
2
3
4
5
6
7
8
9
2950.00*
3250
4440
4900
5100
4000
3000
2800
-
0
0
600
0
0
6000
0
-
-
0
0
11300 12000 16000
2500.50**
2500
2500
2325
2468
4235
5225.62
4040
5400
1710
1527
1725
1900
2500
2775
2920
-
-
1000
500
710
800
1000
960
1200
1800
2150
220
220
220
220
230
220
220
212
250
5
5
5
6
9
10
12
10
15
14.5
18
19
39
24.4
24
30
-
-
10
10
10
10
20
15
18
-
-
30
30
30
50
65
70
70
60
50
Monitoring Mechanism
5
10
11
20
20
15
20
-
-
PURA
-
-
-
0
1
10
10
10
30
-
-
-
Rural Housing Swaarnajayanti Gram Swarozgar Yojana DRDA Administration Grants to National Institute of Rural Dev. Training Schemes Information, Education and Communication (IEC) Assistance to C.A.P.A.R.T
N.S.A.P
715
835 0.00@
0
-
-
Annapoorna Management Support to RD Programmes and Strengthening district Planning Process
100
300 0.00@
0
-
-
-
-
-
-
68.00
68
75
Total Rural Development
9260
9205 10270 10270 11437.4 18334 24025.62 27500 31500
Union Bu udget Outlays s for MoRD
2000- 2001- 2002- 2003-
Example NREGA – Critical Analysis (contd ) (contd…) • Decreased support to technical research activities. • Decreased support to Information, Education and Communication activities. • From the State’s point of view, such schemes have largel been seen as a employment largely emplo ment programmes only. • Implementation p in terms of building g environmentally resilient assets that also lead to eco-restoration and climate change adaptation still insufficient in terms of technical capacity. • Largely seen as a employment programme only
Revisiting the framework State supported schemes for development of livelihoods assets such as natural capital, social-political capital, human capital physical capital, capital and financial capital
Schemes like NREGA in convergence with other schemes have a great potential for eco regeneration
Resilient Livelihoods Processes of deliberative democracy can be facilitated by local NGOs and improved governance of PRIs as happening in Kerala
Multi-stakeholder participation for accelerated dissemination of best practices at regional levels
Decision support environment that integrates local climate information and knowledge into informed solutions
Decision support environment, research for local climate impacts, sufficient technical assistance and capacity and efficient public di t ib ti distribution systems t are important for bringing long-term solutions
Conclusions • In sum climate change impacts are being observed and have induced vulnerability especially in the agriculture sector, t which hi h calls ll ffor li livelihoods lih d ttransformations f ti iin Bundelkhand region through processes that are discursive and monitored. • Livelihoods programmes like NREGA have an immense potential as a social safety-net and climate change adaptation through preservation and eco-regeneration activities act v t es in rural u a India. d a. • Programmes also have immense potential to capitalize on new opportunities in climate change mitigation. g impacts p would be p possible through g these • Long-term schemes under an appropriate decision support environment.
… in the research field, field many a times when we identify a problem, we have a tendency to start admiring the problem and hence the debate goes around the problem (Bhan, 2009) … impacts i t off climate li t change h calls ll ffor urgency and d th the research community must look for innovation and solutions so u o s thee p problem ob e ((Pachauri, ac au , 2009) 009)
Note: Quoted at the 5th Annual Conference of Biopesticides, April 2009, New Delhi
Thank You SHAILLY KEDIA
[email protected] shailly kedia@teri res in
[email protected]
