Informing India: 2008

Eleventh Plan Response to Environment and Climate Change

Gyana Ranjan Panda
CBGA New Delhi

(This is published as CBGA publication for the two days National Conference on Role of civil Society in the 11th Five year Plan (15th &16th DEC, 2008)

“The environment must not be considered as just another sector of national development. It should form a crucial guiding dimension for Plans and programmes in each sector. This becomes clear only if the concern for environmental protection is understood in its proper context.” --As outlined by the 6th Five Year Plan (FY 1980-85)

The Planning process in India and the sector of environment and climate change is not new one and however it has not attain its due attention like other social sectors such as education, health, rural development, etc. The 6th five year plan is the first plan that focused over the Environment, and Climate Change, on the other hand, subsequently got first time reference in the planning radar in the 10th five year (2002-07) plan document.

Environmental problems in India according to planning document are arising from conditions of poverty and under-development and those arising as negative effects of the very process of development. Therefore the concern for environment is essentially a desire to see that national development proceeds along rational sustainable development and environmental conservation is, in fact, the very basis of all development programmes.

The 10th Plan document considers sustainability is not an option but an imperative. “Without sustainability, environmental deterioration and economic decline will be feeding on each other leading to poverty, pollution, poor health, political upheaval and unrest. The environment is not to be seen as stand-alone concern. It cuts across all sector of development.”

The 11th plan has taken one step further and envisages protection of environment has to be a central part of any sustainable inclusive growth strategy. The action oriented visions of the present plan period outlined synergic actions of different ministries to adapt and mitigate the danger of environment arising greatly out of population growth, urbanization and other anthropogenic development leading to due to land degradation, fragile ecosystem, lopsided industrialization, deforestation, loss of biodiversity and environment pollution. The Eleventh Plan intends to integrate various environment considerations into policymaking in all sectors of the economy— infrastructure, transport, water supply, sanitation, industry, agriculture, and anti-poverty programmes. It further calls for strengthening the oversight and regulatory framework for environment management so that development decisions do not impinge adversely on sustainability. Institutionally, the 11th plan considers the Ministry of Environment and Forests’ (MoEF) to have a central and nodal role in monitoring the development process and its environmental impact in a perspective of sustainable development and also empowered to devise suitable regulatory structures to achieve the desired results. While this role is crucial, environmental objectives can only be achieved if environmental concerns are internalized in policymaking in a large number of sectors. This would require sharing of responsibility at all levels of government and across sectors with respect to monitoring of pollution, enforcement of regulations, and development of programmes for mitigation and abatement. Regulatory enforcement must also be combined with incentives, including market and fiscal mechanisms to encourage both industry and people in their day-to-day working lives to act in a manner responsive to environmental concerns. Lastly, sustainable use of natural resources also requires community participation with a responsible role assigned to the communities for conservation.

The 11th plan in particular mulls environment to be a part of concurrent subject in the 7th schedule of the constitution through a constitutional amendment so that responsibility of maintaining the environment rests at all levels of government. At present it is a ‘residual central subject’. Furthermore, it also calls upon the government to set up institutionally an independent, statutory body on sustainable development with the specific responsibility of guiding government policies and programmes for making them more socially and environmentally sustainable, and to monitor and evaluate their outcomes. The independent statutory body is to be an interface platform between eminent environment experts and citizens to address the complex environment concerns. Besides, it aims to restructure the existing State Pollution Control Boards (SPCBs) as statutory Environment Protection Authorities with the mandate of developing regulations, standards and as well as upgrading facilities for enforcing compliance. The 11th plan further charted out to revive the scheme of Paryavaran Vahinis, or committees of concerned citizens to serve as environmental watchdogs of the environmental situation in the districts level. At the sub-district level, for improving the quality and transparency of the environmental clearance process, prior informed consent of the local self governments of the respective area, as specifically provided in Panchayat (Extension of Schedule Areas) Act (PESA), may be introduced for proposals requiring environmental clearance. Public hearing should also be made mandatory for the activities specified in the Environment Impact Assessment notification.

Monitorable Targets in the 11th Plan
To increase the forest cover by 5% of the total geographical area from the 10th plan targets. This would require an additional cover of about 16 million ha. The 10th plan target for forest cover was 25%.
Monitorable target in Air Quality should be to achieve WHO standards of air quality in all major cities by 2011-12.
No untreated sewage is drained into rivers by 2011-12.
An institutional mechanism is required to be put in place to ensure that issues related to handling of industrial, hazardous and biomedical waste are also dealt under JNNURM and Urban Infrastructure Development Scheme for Small and Medium Town (UIDSSMT).
To reduce the energy intensity per unit of GDP by 20% over the Plan period or by 2016–17. Action need to be initiated to increase access to cleaner and renewable energy by fully exploiting existing resources (Hydropower and Wind power) and also supporting research in newer areas of carbon capture, bio fuels from agro-waste, solar energy, etc.

Major Programmes/ Schemes and Strategies envisage in the 11th Plan

The 11th plan has undertaken a rationalization exercises by clubbing/ merging large number of the schemes of the ministry into 22 thematic schemes. In fact, the total number of schemes and programmes in the 10th plan comes around seventy in number. Those main Central Sector schemes and Central Sponsored Schemes which have been attached importance in the 11th plan are the National River Conservation Plan; National Afforestaion Programme (NAP); Social Forestry with Communities (Panchayat Van Yojana); Intensification of Forest Management; Conservation of Natural Resources and Ecosystems; Project Tiger; Environmental Information, Education and Awareness; Pollution Abatement; National Coastal Management Programme, etc.

Under the National Afforestation Programme, the strategy of the 11th plan has been to revisit the policy objectives of the 33% tree/forest covers. The plan intend to include other habitats like grasslands, natural desert ecosystems, alpine and riparian habitats to expand the green covers even if this means the nonexistence of tree components within its ambit. Furthermore the 11th plan has also focused over enabling socio and participatory regimes for the afforestation through Joint Forest Management (JFM).

The National River Conservation Plan (NRCP), the biggest Central Sponsored Scheme (CSS) under the broad head of the Environment and Ecology has pursued a new strategy in involving urban local bodies (ULBs) in developing the programme along with specific statutory responsibility for operating and maintaining the treatment facilities created. Furthermore the 11th plan also further stressed for incorporating environment management services in the JNNURM and Urban Infrastructure Development Scheme for Small and Medium Towns. Besides, the NRCP encourages decentralized systems of wastewater treatment as against centralized, large, end-of –pipe treatment units. Recycling/reuse of treated sewage in cities should be promoted. Resident groups should be sensitized towards water conservation, recycling and reuse.

During the Eleventh Plan, the Programme of Environmental Education, Training, and Extension expected to be reinforced by establishing further linkages with the publicity and awareness mechanisms of State forest departments. The importance will be attached to extensive Information, Education and Communication (IEC) activities through Public transport like railways, buses, and even airways for environmental awareness. Information generated by student activities on local environmental issues may be integrated with the database under the National Environmental Monitoring Programme (NEMP). The 11th plan has reinforced the existing plans such as National Green Corps Programme and National Environment Awareness Campaign through establishing and supporting through their capacity building and training of Eco-clubs in schools, NGOs, Colleges, Universities, Research Institute, women and youth organizations, professional societies, etc., for increased understanding of Environment and Environmental problems; sensitization of general public; provision of environmental education opportunities; development of resource materials for environment education and awareness through radio programme.

The 11th plan for adaptation and mitigation of Climate Change, unlike the previous plans, has envisaged some ‘specific institutional arrangements within government’ as well as ‘coordinated efforts through relevant scientific institutions in government as well as non-governmental sector’ to oversee and monitor any development related to climate change and therefore the greater frequency in natural disasters arising out of climate variability. Adaptation responses need to be incorporated in the relevant programmes, including those relating to watershed management, land development, coastal zone planning and regulation, forestry management, agricultural technologies and practices, education and health. On the other hand for mitigation measures, the 11th plan has remained silent in its strategy formulation.
Plan Outlay for the Sector

The amount of Rs. 5945 crores was allocated to the MoEF for the 10th Plan with sectoral focus over National River Conservation Directorate (28%) and Forestry and wildlife (27%). However in the 11th five year plan allocation for the Ministry has increased by 68% compared to previous plan period with cumulative five years outlays (FY2007-12) of Rs. 10005 crores. The Central Sector scheme accounts 23% of total plan outlays for the Ministry and Central Sponsored Schemes (CSS) on the other hand constitutes of 77% of plan outlays for the Ministry.

The Annual Plan 2008-09 of the Ministry has been approved at Rs.1500.00 crores, implying an increase of 11.03% over the 2007-08 plan outlay. The approved outlay comprises of Rs. 601.38 crores in the Environment & Ecology sector and Rs. 898.62 crores in the forestry & wildlife sector. In the approved outlay of 11th plan, the Central Sponsored Scheme (CSS) --- National River conservation Plan (NRCP) ---comprises a total of 55.46% of total outlays for the Environment and Ecology and another CSS, National Afforestation Programme (NAP) constitutes 32% of total plan allocation for the expenditure head of the Forestry and Wildlife.

The 11th plan as undertaken a measure of rationalization exercises as large number of the schemes of the ministry have been clubbed/ merged into 22 thematic schemes. 11th plan has introduced new CSS, Social Forestry with Communities (Panchayat Van Yojana) with approved outlay of Rs. 900 crores.

Scope for Civil Society Engagement

The 11th plan has acknowledged the role of civil society and communities in many schemes to make the planning processes in Environment and Climate Change broad base and participatory. Broadly, while resting responsibility at all levels of government and across sectors with respect to monitoring of pollution, enforcement of regulations, development of programmes for mitigation and abatement; the plan also called for market and fiscal mechanisms to encourage both industry and people in their day-to-day working lives to act in a manner responsive to environmental concerns. Besides, in precise way, the sustainable use of natural resources also requires community participation with a responsible role assigned to the communities for conservation. The 11th plan envisages a new independent and statutory body on sustainable development that would comprise eminent environmental experts and citizens with a long and publicly known record in environmental research or action.

Programme wise, the planning also intents to revive the Paryavaran Vahini or committees of concerned citizens to serve as environmental watchdogs or providing selective monitoring of the environmental situation in the districts. The plan also enforces the empowerment of the local communities with appropriate rights and responsibilities so that people’s involvement in forest conservation and management can be streamline in the Joint Forest Management (JFM) regime under National Afforestation Programme (NAP). The plan also attempts similar approach in wild life management in the wake of rapid poaching of indigenous animals. In the coastal management and conservation, the plan outlined the participation of civil society and fishing/coastal communities in the state level coastal zone management for conservation and sustainable harvests. More importantly in generating environmental awareness and education, the civil society plays a pivotal role in creating awareness IEC materials, building capacity and imparting training in particular to grassroots practitioners

Limitations in the 11th plan:

The planning chapter on Environment and Climate Change has failed to analyze and establish, at the outset, the close connection involving the sector of environment and climate change with sustainable inclusive growth strategy. Though the 6th plan has very forcibly established the relationship between the environment degradations and with the conditions of poverty and underdevelopment and the negative effects of the developmental process; however the 11th plan lack such vision and objectives in initial paragraphs and therefore has failed to reinforce such assumptions in the context of rapid liberalization of Indian economy as well as society and rapid downslide of environment and climate change.

Furthermore, while the Plan chapter on Environment and Climate Change is incredibly informative about the problems, the existing as well as new schemes and programmes, and strategies in the 11th plan with regard to Afforestation, Social forestry, Agro forestry, Air quality and Water quality, National river Conservation Plan, National Lake Conservation Plan, Waste Management; however, it has been sketchy and lack details in extraordinarily important and crucial sectors of Biodiversity, Biosphere Reserves, Mountain ecosystems, Coastal Zone Management, not to mention of very important Wildlife and Animal welfare.

The 11th plan response to Climate Change vulnerability though supply a detailed background analysis of the problem, however the required policy responses with regard to adaptation and mitigation measures concerned in the required five year period lack teeth and any credible action plans and strategy. The present planning process has failed to prescribe any new concrete plan for climate change adaptation, but rather has subscribed to the principle of synergizing the existing policies running under different ministries. Moreover the plan has failed to allocate any plan outlays for climate change vulnerability.