Introduction :
Himachal has the largest concentration of tribal people . Himachal with a variety of ecosystems, presents a varied tribal population throughout its length and breadth. The tribals live mostly in isolated villages or hamlets. A smaller portion of their population has now settled in permanent villages as well as in towns and cities. Scheduled Tribes, Schedules Castes and de-notified tribes constitute the weakest section of state's poverty. Traditionally, tribal people of Himachal have been outside the purview of the Hindu caste system. Tribal communities interacted with the non- tribal, caste Hindu communities but largely remained separate from the social structure.
The total area of Himachal Pradesh is 55673 square Kilometre, which is divided into 12 administrative districts, 48 Sub-Divisions and 102 Tehsil and Sub-Tehsils. Out of this total area, 32,271 square Kilometres is the measured area according to revenue records of the Pradesh. The total population of Himachal Pradesh according to 2001 census was 60, 77900 and a density of population is 109 persons per square kilometre. The Scheduled Tribe population of the Pradesh, which has its concentration in districts of Kinnaur and Lahaul-Spiti, parts of Chamba district and scattered in other district is 245000, which is 4.02 per cent of the total population. About 69 per cent of the State's tribal population falls under the Tribal SubPlan areas. There are wide variations in Area and Population figures of the districts (Census, 1971).The tribal areas include Kinnaur and Lahaul-Spiti districts in their entirety along with Pangi and Bharmour tehsils of Chamba district. It covers 42.49 per cent of the total geographical area of the state, it encompasses nine tehsils and three sub-tehsils of the state, namely, Bharmour, Pangi, Nichar, Holi, Lahaul, Kalpa, Spiti, Udaipur, Morang, Sangla, Pooh and Hangrang (Census, 2001).
Socio-economic scheduled tribes of Himachal Pradesh :
The history suggests Kols, Kinnaras, Kirtas, Khashas, Kunnids, Kunets, Gaddis, Gujjars and Lahualas inhabited Himachal Pradesh since ancient times. tribes inhabiting Himachal Pradesh are Gaddi, Gujjars, Kannaura or Kinnara, Lahaula, Swangia, Pangwala, Jad or Lamba, and Shot or Bodh. These groups were included in the schedule of the tribes at different points of time and under different Presidential notifications. While the Gaddi tribe was notified in 1950, the Kannauras, Gujjars and Jad were notified in 1951,1951 and 1956 respectively. The other groups, namely Lamba, Shot, Pangwala, Lahaula etc. were notified in 1966 (Negi, 1976: 7). The Gaddis and the Gujjars are not treated as Scheduled Tribe throughout the state; especially those who were the inhabitants of the territories specified in sub-section (1) of section 5 of the Punjab Reorganization Act 31 of 1966. They were excluded from being designated as Scheduled Tribe. Finally under the notification (Scheduled Areas - Himachal Pradesh -order 1975) issued by the then President of India, Fakhrudin Ali Ahmed, eight main tribes, namely Bhot or Bodh, Gaddi, Gujjar, Jad or Lamba or Khampa, Kannaura or Kinnara, Lahula, Pangwala and Swangia are the main tribes in Himachal Pradesh.
Development Process in Himachal Pradesh :
The founding fathers of the Indian constitution were aware of their problems. Therefore, they made special provisions for their protection and development. The main safeguards include promotion of educational and economic interests and their protection from injustices and all forms of exploitation.
It also permits the States to make reservation in public services in case of inadequate representation and requiring them to consider their claims in appointments to public services. The constitution provides special representation for the STs in the Lok Sabha and State legislative Assemblies till 25th January, 2010 ((Article 330, 332, and 334) and enjoins the setting up of separate departments in the States and National Commission at the Centre to promote their welfare and safeguard their interests (Art. 224, fifth and Sixth Schedules) and grant-in-aid to the States to meet the cost of such schemes of development as may be undertaken by them for prompting the welfare of the Schedule Tribes or raising the level of Schedule Areas (Art. 275 (1) are also guaranteed. Latter on with a view to effectively deal with the crimes against the Scheduled Tribes two special laws, viz., Protection of Civil Rights Act, 1995 and the Scheduled Castes, Schedules Tribes (prevention of Atrocities) Act, 1989 were enacted.
Until the Fourth Five Year Plan, like other states, very little attention was paid to tribal development in Himachal Pradesh. However, from the Fifth Five Year Plan onwards, a new strategy, i.e. tribal sub – plan approach was adopted.
Tribal Sub Plan :
The basic purpose of this strategy was to have separate and identifiable physical and financial programmes for tribes and the tribal areas. The allocations so worked out in the tribal sub- plan were non- divertible to other areas. For this purpose, the tribal areas were divided into two categories: (i) the area having mire than 50 per cent tribal population, and (ii) areas which have dispersed tribal population. In the case of the former, and area specific development approach was adopted, whereas in case of the latter, a family based approach of development was considered suitable. In pursuance of this policy, all areas with mire than 50 per cent tribal population were placed under tribal sub- plan. The areas identified as tribal under tribal sub-plan in Himachal Pradesh were divided for administrative purposes into five separate regions. (1) The entire district of Kinnaur; (2) Spiti sub-division; (3) Lahaul sub- division; (4) Pangi sub-division,; and (5) Bharmour Sub-division. These areas hitherto had been identified as Tribal Development Blocks. They form a contiguous border belt in the north and north-east of the state, comprising 86 per cent of the total tribal population.
For effective implementation of the development programmes, these five tribal sub-divisions have been further divided into smaller administrative units. The entire district of Kinnaur was divided into three sub-divisions: Kalpa, Pooh and Nichar; and five tehsils and one sub-tehsil. Lahaul sub-division was bifurcated into Lahaul tehsil and Udaipur sub-tehsil. However, no further administrative division was affected in the case of each of the three sub-divisions-Spiti, Pangi and Bharmaur. For each tribal sub-division, the state government introduced the nucleus budget scheme. It was decided the nucleus budget so provided will be used only for contingency planning of the respective tribal sub- division, and the funds will be spent for such schemes as are of local importance and for which adequate normal and specific would generate flexibility and initiative for development work and remove some of the bottlenecks inherent in planning.
Single Line Administration :
Every district officer posted in tribal areas was put under the direct control of the Deputy Commissioner. To ensure people’s participation, a Tribal Advisory Council was constituted in 1978, the recommendations of which were to be considered while formulating policies for tribal development. Not only this, the government also constituted Project Advisory Committees in all five tribal sub-regions. This Committee, among others, comprises the members of Legislative Assembly, Members of Parliament of the concerned area, district heads of departments, progressive farmers, and representatives of entrepreneurs, local bodies and important institutions. The Deputy Commissioner is the Chairman of the Committee. The Committee is entrusted with the task of looking after both the formulation and implementation of the tribal sub-plan. Order to make implementation of the sub-plan effective, financial powers have been decentralized and special powers to various officers connected with the implementation of ITD Programmes have been delegated to heads of the departments, controlling officers, disbursing officers, etc. All these efforts were intended to achieve the objectives as outlined in the tribal sub- plan.
Tribal Development under the Five Year Plan in Himachal Pradesh :
The concept of incorporating Tribal Sub-Plan in the Annual Plan of the State was first introduced by the Planning Commission, Government of India on the eve of 5th Five-Year Plan. Comprehensive development of Tribal areas focusing particularly on the Welfare of individual tribal family was the main objective of the tribal sub-plan. A number of new programmes were also introduced, besides intensifying programmes, which were already popular. In view of the weaknesses of the earlier area based programme viz. Tribal Development Blocks and Tribal Development Agencies, a new strategy was evolved in the Fifth Five Year Plan (1974-79) for the foundation of tribal sub plan (TSP) for the areas of tribal concentration. This is intended to achieve an intensity of attention to the tribal areas and devise measures to suite their local ethos. The original sub-plan for the 5th plan period (1974-79) was approved for Rs. 16 crores. In the Sixth Five Year plan emphasis shifted from welfare family and beneficiary oriented development schemes within the general frame work of socio-economic programme specifically directed at and designed for the benefit of the scheduled tribes. Coverage of ST population under sub-plan treatment was sought to be extended through the adoption of the Modified Area Development Approach (MADA) where pockets of tribal concentration were pockets of tribal concentration were identified. Two such pockets were identified in the State in 1981-82 and ST population coverage rose to 58% (1991).
The State Plan flow to the tribal sub-plan during the 5th plan (1974-78) was targeted at 5.36 and the actual achievement was 5.75%. Similarly the State Plan flow to the tribal sub-plan for the 6th plan period (1980-85) was targeted at 8.48 and actual achievement was 8.62%. The Seventh Plan (1985-90) was designed to consolidate the gains of past investment and to launch the country on the path to further development geared to equity, removal of deprivation and a tangible rise in level of social welfare and social consumption, especially of the disadvantaged sections of the society. The strategy for this purpose was based on the emphasis on food, work and productivity. The T.S.P. strategy was extended to cover all the tribals including the dispersed tribals in the beneficiary oriented programmes. The State Plan flow to the tribal sub-plan was targeted at 9% for the Seventh Plan period and actual achievement had been of the order of 8.78%. The tribal sub-plan strategy from Fifth Plan onwards has results and proved beneficial to socio-economic development of tribals and tribal areas.
A fundamental change in the process of formulating the Tribal Sub-plan strategy on Maharashtra Model had been introduced at the end of the Eighth Five year Plan. The State Plan flow to the tribal Sub-Plan was targeted at 9% for the Eighth Plan period and achievement is about 8.56%. The Ninth Five-Year Plan laid greater emphasis on accelerated growth in employment, provision of basic minimum services to the people, eradication of poverty and provision of food security. An outlay of Rs. 495 crores had been proposed for the Ninth Five Year Plan against which Rs. 646.03 crore were utilised by the end of the Plan 31-3-2002. The Tenth Five-Year Plan laid greater emphasis on accelerated growth in employment, provision of basic minimum services to the people, eradication of poverty and provision of food security. An outlay of Rs. 856.35 crores had been proposed for the Tenth Five-Year Plan against which Rs. 685.75 crore were utilised by the end of the Plan 31.3.2007. A provision of Rs. 1260.00 crore has been made for the Tribal Sub Plan for Eleventh Five Year Plan 2007- 12 out of which Rs. 243.00 crore including provision for BADP/SCA shall be utilised during 2009-10 against anticipated expenditure of Rs. 220.72 crores during 2008-09.
The tribal areas of Himachal Pradesh though sparsely populated continue to receive special attention of the State Government primarily on account of their strategic location and comparative economic backwardness.
The Tribal Sub-Plan covering the majority of Scheduled Tribes was started in 1974-75 in Himachal Pradesh and by 1987-88 the entire Scheduled Tribes population was brought under the ambit of the Tribal Sub-Plan. The State Government is trying to accelerate socio-economic development of these areas by earmarking adequate funds in the Annual Plans. The flow of funds from State Plan to Tribal Sub- Plan has substantially increased over a period of time from 3.65 in 1974-75 to about 95 at the end of the Eighth Five Year Plan of and the same level for the 11th Five Year Plan. The size of 11th Five Year Tribal Sub- Plan 2007-12 and Annual Tribal Sub-Plan 2009-10 has been fixed at Rs. 1260.00 crores and Rs. 243.00 crores respectively.
other Initiatives for Tribal Development :
Formation of Tribal development Department : The Tribal Development Department came into existence in June, 1976 with the objective/purpose to give special focus on the social and economical upliftment of most deprived class of society i.e Scheduled Tribes. In the field level i.e. in Scheduled Area of Himachal Pradesh five Integrated Tribal Development Projects (ITDP) had been opened viz. ITDP Kinnaur at Reckong Peo, ITDP Lahaul at Keylong, ITDP Spiti at Kaza, ITDP Pangi at Killar and ITDP Bharmour with its Headquarter at Shimla. In the year 1981 the work relating to the welfare of scheduled caste i.e. Special Component Plan had been given to this Department and thereby changing its name from Tribal Development Department to Scheduled Caste and Scheduled Tribes Development Department.
Eklavya model residential school in tribal populated areas : During the Ninth Five-Year Plan, the Ministry of Tribal Affairs, Government of India sanctioned its approval to establish 100 Eklavya Model Residential Schools in the Tribal Areas of the country. Eklavya schools will be established for scheduled caste (SC) and schedule tribe students by 2022 on the lines of Navodaya schools. They will be model residential school set up in each block.
Tribal Cooperative Marketing Development Federation of India (TRIFED) : The ultimate objective of TRIFED is socio-economic development of tribal people in the country by way of marketing development of the tribal products on which the lives of tribals depends heavily as they spend most of their time and derive major portion of their income.
The approach of marketing development of tribal products envisages TRIFED’s role as a facilitator and service provider. The philosophy behind this approach is to empower tribal people with knowledge, tools and pool of information so that they can undertake their operations in a more systematic and scientific manner. It involves capacity building of the tribal people through sensitization, formation of Self Help Groups (SHGs) and imparting training to them for undertaking a particular activity, exploring marketing possibilities in national as well as international markets, creating opportunities for marketing tribal products on a sustainable basis, creating a brand and providing other services.
Village Grain Bank scheme : Village Grain Bank scheme is being implemented since November 2004 by the Department of Food & Public Distribution. The scheme aims to help marginalised food insecure households who do not have sufficient resources to purchase rations during lean season or natural calamities. Such households in need of food grains, can borrow them from the village grain banks set up within their villages to be subsequently returned to the bank. Such banks can be set up in food scarce areas like drought prone areas, hot and cold desert areas, tribal areas and the inaccessible hilly areas which remain cut off because of natural calamities like flood etc. About 30—40 below Poverty Line/Antyodaya Anna Yojna families may form a grain bank. These villages are to be identified/notified by the concerned State Government/Union Territories. Food grains are loaned to BPL families at the rate of one quintal per family under village grain bank scheme.
Way Forward :
The adoption of single consolidated demand in the Annual Budget and introduction of single-line administration in the ITDPs have been outstanding achievement of this State in furtherance to the cause of socio-economic development of tribal community in the State. There is a need to make a review of the tribal situation. Strategy for development would require an intensive approach to the tribal problems in terms of their geographic and demographic concentration, if the faster development of the community is to take place. While these achievements are a matter of some satisfaction as various development plans, policies and programmes have brought forth a perceptible improvement in the socio-economic status of the Scheduled Tribes, a lot more needs to be done with concerted focus on the issues crucial to improve their status on par with the rest of the population.
These are; prevention of land alienation from tribal to non-tribal; review of National Forest Policy and Forest (Conservation) Act 1980; consideration of symbiotic relationship that the tribals are having with forest; provision of clean drinking water and medical facilities; effective rehabilitation of the tribals who are displaced on account of setting up of development projects; and legal measures to curb the activities of money lenders and traders by effective implementation of laws and regulations. Women play a significant role in tribal society; therefore, their empowerment with up gradation of their skill is one of the issues to be addressed urgently. After independence the policy stresses the need to recognize tribal rights over land and forest and to let them develop along the lines of their own genius, but in reality, tribal communities have been progressively alienated from their traditional rights over natural resources like Land, Forest, River and that has eroded the very basis of their existence. The government is working hard towards a new social order based on social equality and social harmony, but still it is not adequate enough for the development of tribal people in India as well as in Himachal Pradesh.