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Chhattisgarh's CFR management plan implementation under PM-DA JGUA: A promising start

By Dr. Manohar Chauhan* 
Chhattisgarh is poised to benefit significantly from the Pradhan Mantri Dharti Aaba Janjatiya Gram Uttkarsh Abhiyan (PM-DA JGUA) Mission, launched by the Prime Minister on October 2, 2024.  This mission aims to support 400 gram sabhas in the state in developing and implementing Community Forest Resource (CFR) Management Plans.
On November 26, 2024, the Chhattisgarh government submitted a proposal to the Ministry of Tribal Affairs (MoTA) under PM-DA JGUA, requesting Rs. 34,875.98 lakhs for various FRA-related activities.  This included funding for establishing FRA cells at the state, district, and sub-divisional levels, capacity building, IEC campaigns, media management, and the execution of 2,227 CFR management plans.
The Project Appraisal Committee (PAC) of MoTA, in its meeting on December 24, 2024, approved Rs. 6,285.95 lakhs for one year. This funding will support the establishment of a State FRA Cell, FRA Cells in 30 districts, and the execution of CFR Management Plans in 400 gram sabhas.
Notably, while the PM-DA JGUA guidelines provide Rs. 1 lakh for Technical Agencies (TAs)/NGOs to support gram sabhas in preparing CFR management plans, the state government's proposal did not include this provision.  However, the state can submit a revised proposal to MoTA for this component, as per the guidelines.
Key FRA Components Supported by MoTA Under PM-DA JGUA:
The PM-DA JGUA guidelines outline the following key FRA components eligible for MoTA funding:
 * Development of a State FRA Portal integrated with the national FRA portal.
 * Digitization of records, Individual Forest Rights (IFR), and CFR data, including legacy data and claim processes, and mapping of potential forest rights.
 * Establishment of FRA Cells at the state, district, and SDLC levels.
 * Rs. 15 lakhs financial support to selected gram sabhas for executing CFR Management Plans covering over 100 hectares of forest land.
 * Rs. 1 lakh support to TAs/NGOs assisting gram sabhas in preparing CFR management plans.
Chhattisgarh's Proactive Approach:
Chhattisgarh has been proactive in implementing FRA.  It was the first state to organize a state-level awareness program on PM-DA JGUA, inviting CSOs and line departments on January 6, 2025.  Prior to this, the state government, acting on MoTA’s CFR Management Guidelines (September 12, 2023), disseminated CFR MP Guidelines to districts in Hindi and English on March 1, 2024, issued various orders and directions to district collectors, and disbursed financial support to gram sabhas.  For instance, on February 28, 2024, Rs. 3,01,84,000 was disbursed to 30 districts for 4,000 CFR management committees under Article 275(1).  The state also directed districts to constitute District Level Monitoring Committees, form CFR Management Committees, open bank accounts, recognize the Executive Committee (CFRMC) as the implementing agency, and issued detailed guidelines on providing financial support to eligible gram sabhas.
In addition to the Rs. 15 lakh support under PM JGUA, some gram sabhas with CFRMCs have received Rs. 7,000, and approximately 500 gram sabhas/CFRMCs are receiving Rs. 50,000 for CFR management plan execution.  However, there is a lack of clarity regarding the actual disbursement of these funds.
Following the completion of local body elections, the state government is expected to align the financial support received under Article 275(1) with the PM-DA JGUA guidelines and onboard TAs/NGOs at the district level.
Recommendations:
Given that the preparation of the approved 400 CFR Management Plans will be a learning process, the state and district administrations should empanel local NGOs with experience in FRA to support gram sabhas.
The state government could consider providing the Rs. 1 lakh TA/NGO support to capable CFR Management Committees that can prepare their plans independently.
Status of Approved Funds and Challenges:
To avail the Rs. 15 lakh support for CFR Management Plan execution, gram sabhas must have received CFRR titles under Annexure-IV of the Forest Rights Rules and Section 3(1)(i) of FRA, 2006, and have a formed CFR Management Committee with a bank account.
Many states, despite having significant CFRR areas, are unable to access this funding due to non-fulfillment of these prerequisites, often due to past negligence and resistance from state forest departments.  This has led to fewer proposals and approvals for CFR management plans across states.  For example, while MoTA received proposals for thousands of plans, it approved only a fraction, including 400 in Chhattisgarh, 100 in Odisha, and 10 in Tamil Nadu.
Even Maharashtra, a leading state in CFRR recognition, did not request funds for CFR management plans due to pending funds received under Article 275(1) in the 2023-24 financial year.  The status of FRA proposals from Jharkhand and Karnataka is pending.
CFRR Recognition Status:
Maharashtra leads in CFRR recognition with 8,661 villages (as of November 2024), followed by Chhattisgarh with 4,328 (as of September 2024) and Odisha with 3,659 (as of August 2024).  The status of CFRR recognition in other states remains unclear.
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Dr. Manohar Chauhan, FRA Expert, worked in the Chhattisgarh FRA Cell (2019-2022 with UNDP) and is currently with the Foundation for Ecological Security (FES), Anand, Gujarat

Comments

Anonymous said…
Very good document for reference
February 11, 2025
Anonymous said…
There has been an organised attempt to reduce FRA from a governance law of transfer of power and democratisation of forests to the Gram Sabhas to a mere welfare and development scheme. With the rapid rise of potential for global investment in forest areas for extraction of minerals, carbon sink and eco-tourism given the increased capital accumulation with the affluent rich, the forest and Adivasi regions are now suddenly targeted in many ways. # The first is FRA reduced to forest rights titling for their saturation under the centralised control of Tribal Ministry and State Tribal Departments pushing aside the statutory authorities under FRA. # The second is the large-scale targeted dumping of all possible welfare and development schemes. # The third, is the rapid opening up of the forest and Adivasi regions for its rich resources through the ease of doing business facilitated by freeing forest diversion and use for instance with the 2023 amendment to the Forest Conservation Act, removal of people from the Protected Areas in many ways such as the demand of NTCA in June 2024 to evict the remaining 4 lakh forest dwellers from the Core Areas of Tiger Reserves, rapid expansion of Protected Areas and more land brought under the forest regime.
February 11, 2025
Anonymous said…
Great Information in the Artical Dr. MAnohar JI..
February 11, 2025
Anonymous said…

It would help practitioners , academicians , administrators and peoples representatives in general . Let bring such papers & works continuously.
February 12, 2025
Anonymous said…
Thank you so much🙏
February 13, 2025
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