MAHARASHTRA NATURAL RESOURCE MANAGEMENT PROJECT
DRAFT TERMS OF REFERENCE FOR INSTITUTIONAL ASSESSMENT
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 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.
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. NEED FOR INSTITUTIONAL ASSESSMENT.
During the first phase of Maharashtra Forestry Project, the Tata Consultancy services were engaged to undertake detailed Institutional Assessment. The consultants had made some recommendations which were implemented on trial basis during Phase-I. The impact of the Institutional reforms initiated during Phase-I and the need or otherwise to implement the remaining reforms which could not be implemented due to various reasons during Phase-I and the need to introduce any new reforms in view of the change in the basic approach and the project goal and objective of the Maharashtra Natural Resource Management Project, it is considered necessary to carry out an Institutional Assessment study as a prelude to the draft Project Report.
5. OBJECTIVES OF INSTITUTIONAL.
5.1 To study the capacity of the three PFI’s (State Level
Institutions) and suggest ways to bring about desired attitudinal changed for
adopting the participatory approach and suggest ways to enhance their capacity
to act as facilitators as well as discharging their strategic and regulatory
functions.
5.2 To study the impact of recommendations of Tata Consultancy Services which had been implemented during Phase-I and the need or otherwise to implement any other Institutional reforms with a view to develop staff expertise and skills in specialized disciplines and participatory Natural Resource Management commensurate with the changing functions and roles
5.3 To study the capacity of existing village level
Institutions for adopting the participatory process and suggest strategies to
establish the process and how to link it up with the Institution of Gram Sabha
or Gram Panchayat including need for legal or Policy changes required to make
thee Institution’s function effectively.
5.4 To asses the organizational capacity of the forest
dependent communities to constitute village level institutions, recognizing
their own interest in protection and development of the forests. To suggest ways
to empower these institutions to make them self reliant and self-financing by
enabling them to eventually assume the responsibility of protection and
management of forests.
5.5 To identify transparency and accountability norms,
develop indicators for regular monitoring by village level institutions as
well as for evaluation by outside agencies or project facilitators.
5.6 To provide research and development support and I.T.
base for effective implementation of various components of the Natural
Resources Management Project including establishment of MFI envisaged under
the first phase but with focus on efficient Technology transfer and enhanced
access to technical information to various stake holders.
6. SCOPE OF INSTITUTIONAL ASSESSMENT.
The aim of the Institutional Assessment is to design an
action plan logically involving the following issues viz.
Identifying the outputs/end results of the recommendations of TCS made during Phase-I.
Evaluation of Institutional capacity and social organisational issues including HRS systems and practices.
Sequencing the identified activities.
Estimating the costs and indicating the associated legal and administrative changes to facilitate their implementation.
Estimate possible time frame for implementation of the action plan.
Suggesting a system of monitoring the execution of activities and delivery of outputs as per the action plan.
7.0 EVALUATION OF INSTITUTIONAL ISSUES.
The institutional analysis should focus on the feasibility of the proposed poverty alleviation targetting measures and on sustainability of the same based on participation arrangements. Institutional analysis should also identify social capital on which the Natural Resource Development initiative can be build up and point to the local institutions that can help mobilise stake holders to achieve the development objectives. Recommend strategies for strengthening institutional capacity. Local level and informal rules, norms, value and belief systems that shape the attitude and behavior of social groups, which may affect project implementation arrangements. The I.A. institutional analysis will, therefore, not only identify whether any structural blockage exist, but also propose modifications to existing institutional arrangements to overcome them.
8.0 METHODOLOGY:
The consultants shall follow a consultative process to evolve recommendations based on popular concensus both during interaction with the PFI’s and village level institutions for which workshops and discussions should be held and recommendations should be arrived at as a result of such a consultative process.
9.0 OUTPUT EXPECTED:
Institutional Assessment in the form of an inception Report
issues brought out in Workshops, legal and Policy issues.
10.0 Time Schedule. The entire process of the Institutional Assessment is expected to take about four months, including field work.
11.0 Activities & Schedule
In summary, the project would primarily involve:
(a) Frequent Contact/Consultation. The Consultant will be in frequent contact with the Forest Department, FDCM Ltd. and Social Forestry Department, Government of Maharashtra and designated representatives, and with the World Bank and their designated representatives.
Timing: Throughout the I.A. 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 I.A. 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 institutional issues.
Timing: Throughout the I.A. process.
(e) Seminar. The Consultant will present a summary of the I.A. 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.
12.0 PRODUCTS & SCHEDULE
(a)Inception Report. Inception report describing methodology, progress, outline of final I.A. with brief description of each section. In addition, brief description of how environmental and social issues will be integrated in the I.A. 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 I.A 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 an I.A. report as outlined in this TOR. The reports should be developed in a clear, logical and readable manner. Suggested outline of the I.A. is given in Annex-III. 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 I.A. Report is due on (14 weeks after start of assignment)….
(d)Final I.A. Report. Draft final modified as per comments.
The Final I.A. Report is due on…( 16 weeks after start of assignment)
13.0 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.
____________________________________________________________________________________
14.0 RESOURCES AVAILABLE
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 I.A (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.
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 I.A. and confidentiality of such information will be
maintained. The Consultant involved in I.A. Consultant 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.
APPENDIX-I
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APPENDIX II
SUGGESTED OUTLINE OF THE SOCIAL AND ENVIRONMENTAL ASSESSMENT FINAL REPORT.
The Assessment will include a clear and
concise executive summary, and sections outlines below that describe the social
and environmental issues associated with the proposed project in a regional
context. Data that is relevant to the consideration of environmental 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
Introduction
Project Description
Baseline information
Lessons from Previous and Ongoing Project
Project Institutional.
PFI’s (Forests Deptt, Social Forestry Deptt and FDCM Ltd.)
Village Level Institutions.
Monitoring Strategy
Institutional and Policy Issues
Recommendation for present project.
Institutional Development Action Plan for implementation of
recommendations.
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
ANNEXURE-III
KEY CONTACTS.
Forest Department :
Social Forestry Department,
Forest Development Corporation of Maharashtra Ltd.
Overall IA Contacts as Government of Maharashtra.
Primary IA Contacts at Government of Maharashtra.
State-level Contacts:
To be determined……..
The World Bank.
IA Contacts at the World Bank.