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GISdevelopment.net --> Proceedings --> GISDECO --> 2004
Capacity Building of Government Line Departments for Making Use of Geospatial Database in Natural Resource Management in India Dr. P. C. Tiwari Department of Geography Kumaon University India Abstract The need of sustainable development in a developing country like India makes it imperative to adopt an integrated approach for the planning and management of natural resources by maintaining optimal balance between resource-productivity and conservation practices. Since, the formulation and implementation of sustainable resource development programs is an information and data intensive task, it is necessary to evolve an information system considering physical as well as socio-economic parameters of natural resources. But, data acquisition and management system that exists at district or lower level is currently not fully geared to address the information needs of integrated development planning. Besides, conventional methods of data collection, collation and storage and are not amenable for quick up-dation, retrieval and holistic analysis. Geographic Information System (GIS) provides an effective tool for the analysis, handling and management of data on various aspects on natural resources. Several initiatives have been taken, particularly by the Government of India, for the promotion of wider application of geo-spatial database in the planning and management of natural resources by government agencies at district and sub-district levels. A few districts of the country, like Naini Tal in Uttaranchal, are now gradually realizing the usefulness of the technology in planning the process of development. However, there are several practical constraints in facilitating the wider application of the technology by the target users. These obstacles could be removed only interlinking school and college education with the requirements of development planning of the country and evolving low cost and more user friendly GIS technology. Introduction The traditional resource utilization pattern in rural India is closely interlinked with forests, farmland, livestock ad pastures. During the recent past a variety of changes have emerged in the traditional resource use structure in response to the process of rural transformation operative in the region, increased population pressure, and resultant increased demand of natural resources (Palni et al 1998). As a result, the biotic stress on the natural resources, particularly on land and forests resources is increasing having long-term impacts on the natural environment, ecology and biodiversity as well as on the community sustainability in many parts of the country (Tiwari, 2003a). The need of sustainable development in the country therefore makes it imperative to adopt a comprehensive and integrated approach for the planning and management of natural resources by maintaining the optimal balance between resources productivity and conservation practices (Department of Space, 2002). It is therefore, necessary to evolve a natural resources information system taking into consideration the physical as well as socio-economic parameters of natural resources, at district and sub-district levels (Planning Commission of India, 2001, government of Uttaranchal, 2001). While developing this system, emphasis would be given to assess the information needs of the line departments with whom rest the sole responsibility of implementing the process of sustainable development on the ground, and developmental options/ priorities of the local people who have adopt the process of sustainable resource utilization. Geospatial database created through the application of remote sensing and Geographic Information System (GIS), which are capable of detailed analysis of spatial database should constitute the key component of the program so that retrieval and use of information by the users become easier. Objective The main objective of the paper is to make an overview of the initiatives taken at the national as well as lower levels for the creation, handling and management of geospatial database for sustainable development of natural resources, and assessment of the efforts that have been made at district and lower levels for the technical, organizational, institutional capacity building of government line departments for making use of such database in the planning and management of local natural resources with a case illustration of district Naini Tal situated in newly carved Himalayan state of Uttaranchal in India. State Policies for Resource Development In the quest for evolving a model for development planning, the country adopted the approach of macro level resource planning. This model did not yield the desired results, as the inequalities among the people and disparities between different regions persisted, while the environmental conditions continued to degrade leading to severe biotic stress on the critical natural resources, such as, land, water, forests and biodiversity resources (Roy, 2002). In order to ensure the integrated and sustainable development of natural resources in a geographical area, conceptual changes in the practice of planning was brought in around late 70s, by adopting the model of micro or local level planning. The objective of this decentralized planning are: (i) increasing the productivity of land and other natural resources, (ii) employment generation, (iii) poverty alleviation, and (iv) providing minimum amenities and infrastructure (Department of Science and Technology, 2003). In order to implement this strategy of development, institutional changes were brought about through the 73rd and 74rd constitutional amendment Acts (1992 and 1993). According to these constitutional changes, the State Governments were empowered to form the institution of local self-governance right from the village level up to the district level. The Eleventh and Twelfth Schedules of constitution have clearly defined the role of multi-level institutions of governance in the planning and implementation of integrated resource development schemes. But, this needs capacity building at institutions of local self governance to prepare and implement local-specific integrated development schemes by analyzing, appraising, assessing and utilizing the available natural resources at local level (Planning Commission of India, 1984). The Role of Information in Resource Management The conceptualization, formulation and implementation of sustainable resource development programs is an information and data intensive task. India has possibly the longest known tradition of systematically collecting spatial data through various organizations at national level. Besides, there is a strong tradition of non-spatial data collection at district level by different line departments. But, the data acquisition and management system that exists at the district or lower level is currently not fully geared up to address the information needs of integrated development planning. The conventional methods of data collection, collation and storage and are not amenable for quick up-dation, retrieval and holistic analysis. The problems that we encounter in this in this system are: (i) incompatible and non-standard datasets inhibiting integration, (ii) insufficient inter-sectoral data flow, and (iii) lack of information on quality, completeness and lineage of data (Department of Science and Technology, 2003). As mentioned above, the process of integrated approach to planning requires a detailed knowledge of the interrelations and interdependence between various sectors to resolve often conflicting demands (Tiwari, 2003b). This lead to a requirement of appropriate data management and analyzing tools and techniques and a large matrix of spatio-temporal data and information on various sectors, specifically in digital format, on complete range of natural resources in the socio-economic back drops of the micro-regions. This calls for specific scientific interventions in (i) need based data generation, (ii) development and improvement in data handling and analysis tools and techniques, and (iii) efficient distribution of the data and information to user agencies, particularly, the governments departments at district and lower levels (Indian Institute of Technology, 1999). National Initiatives Taking note of the above requirements and the development in the areas of information and communication technology and Geo-spatial Data Management and Analysis Techniques like Remote Sensing and Geographical Information System (GIS), certain initiatives have been taken at the National level to create awareness on the potential and usefulness of these technologies amongst planners and decision makers. The important such programs are: National Natural Resources Information System: This is major program of the Department of Space which seeks to provide an integrated database using remotely sensed data and collateral information in the framework of a spatial information system for optimal management of the natural resources of the country and support environmentally benign sustainable development. This program aims to make available the inventory of natural resources of the nation in a spatial format with proper linkages to other socio-economic data within a framework of a smart information system to enable customized retrieval and analysis for specific needs. The whole program is visualized to be a network of GIS based nodes covering districts, aggregated through states to eventually cover the entire country. So far, 30 district nodes at scale 1:50000 and 4 state nodes at scale 1:250000 covering 17 states of the country have been established through the state remote sensing application centers (National Remote Sensing Agency, 1995). Integrated Mission for Sustainable Development: The Department of Space launched a technology demonstration-cum-exploration program for integrated development called Integrated Mission for Sustainable Development (IMSD), in 1987. National Remote Sensing Agency (NRSA) was identified as nodal agency to implement this ambitious project with the help of Regional Remote Sensing Services Centers and state remote sensing application centers in different parts of the country. The program aims at generating location specific action plan for optimal management of land and water resources using remote sensing technology, contemporary field data and socio-economic profile of the district. The program covered 174 districts spreading across 25 states of the country (National Remote Sensing Agency, 1995). The GIS Program of National Informatics Center: The main objective of the Geographic Information System of National Informatics Center (GISNIC) is to develop and operationalize management information systems for better coordination and administration of development schemes. GIS based information systems are being developed for the monitoring of the schemes at the district level. Natural Resources Data Management System: Understanding the data handling and management requirements, Natural Resources Data Management System (NRDMS) program was launched by the Department of Science and Technology, Government of India way back in 1982 with vision to provide appropriate scientific and technological inputs for operational-zing the concept of decentralized planning in the country. The main goal of this program is to develop scientific natural resources and socio-economic data base approach to support the local level planning. With the entry of computers at district level and GIS in India during late 1980s the goal of NRDMS program were evolved to develop spatial data management technologies for integrated rural development planning and demonstrate it in local level decision making. The focus under NRDMS has always been on technological and institutional capacity building in a multi-level framework, so that people can plan their own development, utilizing local resources. In this respect NRDMS develops and provides tools and techniques for analyzing local level natural resources, interpreting their utilization pattern, assessing their potentials and evolving schemes for their sustainable management and development. In spite of national efforts, spanning two decades large segment of end users are yet to explore the full potential of the system and use it in most of their planning activities due to lack of technical, organizational and institutional capacity. In order to reduce these impediments in the widespread use of technology and make it an effective tool in the process of local level integrated planning, NRDMS is focusing its research on simplifying the methods and techniques of data capture, organization and analysis, devise suitable strategy to transfer the techniques for adoption by the end user in their planning activities. Taking note of the recent trends in the development of spatial data technologies, the emerging changes in the system of governance planning policies, institutionalization of national spatial data infrastructure to meet the aspirations of the users, and in support of the overall transformation in the concept of information sharing, the need was felt for refocusing the R & D thrusts of the program. One of the main aspects of renewed NRDMS approach is the emphasis on the transfer of technology to user agencies and their capacity building. So far 45 district NRDMS centers located in Karnataka, Andhra Pradesh, Orissa, West Bengal, Bihar, Uttar Pradesh, Uttaranchal, Haryana, Gujarat and North Eastern Region have been working in the country. Out total district NRDMS centers operating in India, as many as 6 are located in Uttaranchal with one each in Almora, Naini Tal, Bageshwer, Chamawat, Tehri Garhwal and Pauri districts of the State. The progress attained by the District NRDMS Center, Naini Tal in Uttaranchal in the capacity building of target users at district and sub-district levels, and also the constraints observed coming in the way of the wider application of GIS technology at district level have been studied and illustrated in the following sections of the paper (Tiwari, 2003b). NRDMS Center District Naini Tal The district Nainital in one of the thirteen districts of the newly carved Himalayan State of Uttaranchal in India. It is extending from the low lying foothill belt of Bhabar (Bhabar is gently sloping belt composed of coarse material lying at the foot of Outer Himalaya) in the South to the Lesser Himalayan ranges in the North. The district lies between 290 00 290 45 North Latitudes and 790 00 790 45 East Longitudes (Fig. 1). It encompasses a geographical area of 4767 km2 with a total population of 510542 as per the record of Census of India, 2001. The mountainous tract of the district is situated along the Main Boundary Thrust (MBT) the tectonic juncture between the Lesser Himalayan Ranges in the north and the Siwaliks in the south. Geographically, it is a critical zone, in as much as, it lies within the belt of maximum precipitation (298.60 cm), and also shows relief differences of the highest order. These differences are manifest not only in the ecological diversities but also account for the characteristic geomorphic processes operating in the area, and the resultant landscape types. Consequently, the entire area is tectonically active and vulnerable to various natural hazards, particularly, landslides and erosion. The NRDMS center was set up in district Naini Tal during 1999 2000 by the U.P. Remote Sensing Application Centre, Lucknow with the joint support of the Department of Science and Technology, Government of India, New Delhi and the Government of Uttar Pradesh on cost sharing basis (67:33) respectively. Since, Uttaranchal was created as a separate State in November 2000, the progress of the database center became little bit slow due to non-availability of funds from the Government of Uttaranchal. In order to activate the NRDMS Center at Naini Tal, the Department of Science and Technology, Government of India has decided to transfer the database to the Department of Geography, Kumaon University, Naini Tal, Uttaranchal in 2002. Objectives The main objectives of the establishment of the NRDMS Center at Naini Tal are as follows:
Methodology The following methodological approach has been adopted for the establishment of NRDMS Center at District Naini Tal and capacity building of government line departments for making use of the database created by the Center: Project Coordination Committee: In order to oversee/ monitor, guide and help in the development of NRDMS Center, a Project Coordination Committee was constituted under the chairmanship of the District Magistrate, Naini Tal with the representation of DST (GOI) and representatives of district line departments. Assessment of the Data Requirement of Line Departments: Users interaction workshop was organized for the assessment of the data and information needs of government line departments, and understanding their development priorities in various resources sectors. Inventorying Available Information and Data: In order to assess the availability of relevant data on various aspects of natural resources and socio-economic parameters, a thorough survey of the completed as well on going research activities at various, academic institutions, research institutions and development agencies was carried out, and the available data and information on both physical as well as socio-economic parameters was acquired for its conversion into GIS. Identification of Data Gap: With the detailed survey of the available maps/ reports/ other information available with various line departments/ institutions/ NGOs, the assessment was made to find out the information/ data gaps with respect to various physical and socio-economic parameters. Generation Natural Resource Data: The information about the physical parameters of natural resources was generated through the on screen visual interpretation of LISS III and PAN merged data of Indian Remote Sensing Satellite supported intensive ground truth surveys and field investigations. Collection of Socio-economic Information: The socio-economic information with respect to various aspects of natural resources and resources utilization practices, resource demand, infrastructural and institutional facilities was generated and collected from various primary as well as secondary sources. The primary data and information was generated through exclusively designed questionnaires and schedules. Development of GIS Database: The information thus collected and generated from various sources was transformed into Geographic Information System (GIS), and spatial and non-spatial database were created. Finally, in order to demonstrate the use of the database thus generated to the line departments, an integrated resource development action plan was evolved for one of the development blocks of the district. Technology Transfer and Capacity Building of Line Departments In order to facilitate the application and use of the geospatial database in the planning and management of natural resources at district and sub-district levels a capacity building strategy was formulated and implemented at district level. The main components of this capacity development framework are as follows: Technological Capacity Building of Line Departments: Users interaction workshops were organized to demonstrate the efficiency of the database approach for drawing up integrated resource development plans and to develop user specified applications and test the tools and technologies developed through R & D institutions. Besides, as an important components of the capacity building program two personnel nominated by each of the district level line departments (Forest, Agriculture, Horticulture, Soil Conservation, Public Work Department, Irrigation Department, Water department, Rural Development Agency) have been imparted one-month intensive training in the handling, management and application of geospatial database in the formulation of development schemes and plans. Institutional Capacity Building of Line Departments: A multi-tier institutional set up is being developed for providing technical support in NRDMS technologies and cater the needs of decentralized planning at national, state and local levels. The Forest and Agriculture Departments have been identified as nodal line departments at the district level as a part of the multi-tier institutional hierarchy for providing necessary training, demonstration and technical support to other user agencies at district and sub-district levels. Infrastructural Capacity Building of Line Departments: Series of joint-meetings were organized with the officials of the line departments, representatives of the State Government and the officials of the Department of Science and Technology, Government of India for evolving a workable framework for the development of the infrastructural capacity of the user agencies. It was resolved that the minimum hardware and software required by each of the user department at district and sub-district levels for making use of geospatial database will be provided by both the State and Central governments on cost sharing basis. Organizational Capacity Building of Line Departments: A geospatial data application cell has been created within each of the identified government line departments in the district with support of the Department of Science and Technology, Government of India and the State Government to ensure the wider application of the GIS based natural resources information system in the planning and management of natural resources at district and sub-district levels. All the geospatial application cells working within each line department are proposed to be interlinked with computers so that the data access and sharing would become easier and in order to ensure the application of database approach by all user agencies these cells will function in a coordinated manner under the administrative control of the District Magistrate. Constraints in Capacity Building Despite, the initiatives taken by the key government agencies for facilitating the use of GIS database an effective tool of multi-level decision support system, and creation of a technological base for the development and application geospatial database at various levels, the potential of the available resources is not being utilized to the desirable level. There are several factors and practical constraints coming in the way of making the GIS technology acceptable and adaptable to government agencies (Tiwari, 2002, 2003b). The important constraints discouraging the application of GIS database in the planning and management of natural resources are:
Conclusions It is clear from the above discussion that several initiatives have been taken, particularly by the key central government departments in India for the technological and institutional capacity building in a multi level framework for making use of GIS technology in the planning and management of natural resources by the government agencies at district and sub-district levels. A few districts of the country, like Naini Tal in Uttaranchal are now gradually realizing the usefulness of the technology in planning the process of development. However, it was observed that there are still a number of technical, financial, administrative, organizational and infrastructural constraints in facilitating the wider application of the technology by the target users. These practical constraints in the way of the adaptability of GIS by the line departments could be removed by interlinking school and college education with the requirements of the development planning of the country and evolving low cost and more user friendly GIS technology so that the education department as well as the user agencies could afford for the hardware and software, and the government departments could pick up easily available trained human resource from the market. References Department of Science and Technology (2003), Vision Document, Government of India New Delhi. Government of Uttaranchal, Directorate of Watershed Management (2001), Report on Watersheds and Micro-watersheds in Uttaranchal, Dehradun. Indian Institute of Technology Bombay (1999), Application of GIS in Rural Land Management: A pilot Study on Wasteland Development Planning in Nashik District, Project Report, IIT, Mumbai. National Remote Sensing Agency (1995), Wasteland Atlas of India, Vol. II, NRSA, Hyderabad. Palni, L. M. S. et al (1998), Conservation of the Himalayan Agro-ecosystem: Issues and Priorities, Technical Paper-v, in Ecological Co-operation for Biodiversity Conservation in the Himalaya, United Nations Development Programme, New York, 253-290. Planning Commission of India (1981), Report of the Task Force on Hill Area Development, New Delhi. Planning Commission of India (1984), Report of Hanumanth Rao Committee, New Delhi. Roy, P. S. (2002), Biodiversity Characterization at Landscape Level in India, Paper Presented at the International Workshop on Tropical Forests, Indian Institute of Remote Sensing, Dehradun, 12-14 February. Tiwari, P.C. (2003a), Natural resources Information System for Wasteland Development in Kosi Headwater, Kumaon Himalaya, Final Technical Report, Kumaon University, Naini Tal. Tiwari, P.C. (2003b), Up-gradation and Maintenance of Natural Resources Data Management System Center, Naini Tal, Project Proposal, Department of Science and Technology, Government of India, New Delhi. Tiwari, P.C. (2002), Natural Resources Information System for Public Sector User Agencies for the Sustainable Development of Natural Resources in Uttaranchal Himalaya, in Proceedings of the International Conferences on GIS in Developing Countries, ITC, The Netherlands. |
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