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(2020) 10 GJLDP (October) 191
Forest Conservation Framework for Sustainable Development: A Study of the Malki System in Dangs, Gujarat, India
FOREST CONSERVATION FRAMEWORK FOR SUSTAINABLE DEVELOPMENT: A STUDY OF THE MALKI SYSTEM IN DANGS, GUJARAT, INDIA
by
Dinesh Dasa1
ABSTRACT
Community Forest Management (CFM) is increasingly recognized as a strategic solution for maintaining forests. Thus there is an
urgent need to explore how CFM can be implemented more effectively such that more benefits are harnessed on a sustainable
basis. The CFM ‘Malki system’ enacted by Government of Gujarat, which evolved through a period of many decades, paved a strong
way of maintaining forests, supporting biodiversity conservation and carbon storage in the state of Gujarat, India along with
strengthening the livelihood of the tribal community which is directly dependent on the forests. The startling success of the Malki
system can be gauged by the very fact that 800,000 new trees were planted in the Dang forest during 1994-2019 while Rs 299.4
crores was earned by the 19,936 beneficiaries till December, 2019 by selling the forest produce. Juxtaposing the Environmental
Success along with the Economic Success, the CFM Malki system practised in the State of Gujarat emerges as a classic example of
‘Sustainable Development’ which can be replicated or drawn upon for evolving CFM framework to be implemented in different
forests of the world.
1. INTRODUCTION
Human induced deforestation, forest fragmentation and degradation are serious and ubiquitous threats to biodiversity and
ecosystem services
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(Niemeyer et al., 2019; Lewis et al., 2015). With the rapidly growing human population which is expected to reach 8.5 billion by 2030
and 9.7 billion by 2050 (United Nations, 2020a), along with the present rate and type of consumption, there is a great pressure on
our natural resources. Quantifying this fact, United Nations has alarmed that if nothings changes then by 2050 natural resources
equal to 3 Earths would be required (United Nations, 2020b). Thus it is of utmost importance to shift our focus on ‘environmental
sustainability’ vis-à-vis ‘sustainable development’ - a development that meets the needs of the present without compromising the
ability of future generations to meet their own needs (Brundtland, 1987). 28 years ago, in the United Nation Conference on
Environment and Development, which happened at Rio de Janeiro during 3-14 June 1992, 172 Governments adopted three major
agreements to guide future approaches to development (i) Agenda 21 : a global plan of action to promote sustainable development;
(ii) the Rio Declaration on Environment and Development, a series of principles defining the rights and responsibilities of States; (iii)
the Statement of Forest Principles, a set of principles to under pin the sustainable management of forests worldwide. (United Nations,
1992) and lately in the year 2015, again the issue of sustainability was revisited at the United Nations General Assembly where the
Agenda 2030 was carved out in the form of 17 Sustainable Development Goals (SDGs) having 169 targets which replaced the
Millennium Development Goals (MDGs). Among these 17 SDGs, the SDG No. 15 specifically refers to ‘Protect, restore and promote
sustainable use of terrestrial ecosystems, sustainably manage forests, combat desertification, and halt and reverse land degradation
and halt biodiversity loss’ (United Nations, 2020c). Target 15.1 states that ‘By 2020, ensure the conservation, restoration and
sustainable use of terrestrial and inland freshwater ecosystems and their services, in particular forests, wetlands, mountains and dry
lands, in line with obligations under international agreements’ while Target 15.2 states that ‘By 2020, promote the implementation of
sustainable management of all types of forests, halt deforestation, restore degraded forests and substantially increase afforestation
and reforestation globally (UNDP, 2020). From this SDG and its outlined targets, it can be understood that how important and urgent
is ‘Forest Conservation’. Adding to this, recently the United Nation General Assembly has declared 2021-2031 as the UN decade on
Ecosystem Restoration (FAO, 2019). The importance of attaining this SDG further increases as this SDG is interwoven with the other
SDGs like SDG 1 ‘No Poverty’ as forests acts as a source of
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income for locals, SDG 2 ‘Zero Hunger’ as forests is the source of food and related resources, SDG 3 ‘Good Health and Well-being’ as
forests provides medicinal plants and healthy environment and SDG 13 ‘Climate Action’ as forest combats the impact on climate, by
absorbing and storing carbon and regulating the water balance. The New York Declaration on forests and the Bonn Challenge are
examples of international commitments seeking to restore 350 million hectares of deforested and degraded ecosystem by 2030
(Climate Focus, 2015).
‘Social Forestry’ or ‘Community Forest Management’ is one of the best initiatives towards forest conservation. The term ‘social
forestry’ was first coined by Jack C. Westoby in the year 1967. It was first recognized as an important component of forestry for
meeting rural needs in the interim report of the National Commission on Agriculture (NCA, 1976). The objectives of social forestry
adopted by the NCA were to fulfil the basic and economic needs of the community. It aimed in taking the pressure off the forests and
making use of all unused and fallow land. Government forest areas that are close to human settlement and have been degraded over
the years due to human activities needed to be afforested and trees were to be planted in and around the agricultural fields, along
railway lines and roadsides, and river and canal banks.
It is alarming to note that human impacts have already led to the loss of around 40% of the world's forests and we are losing
around 10 million hectares of forest per year. Thus halting deforestation and evolving effective techniques for protecting and
sustainably managing and restoring forests have never been more urgent (WWF, 2020). With the above background and urgency, the
present study has been undertaken to assess the effectiveness of the Community Forest Management framework adopted in the State
of Gujarat especially over the Dang Forest which spreads over 1723 km2 . As per the Planning Commission of India, Dang is one of the
most economically distressed district out of the 640 districts in India and around 98% of the population belongs to one of the
scheduled tribes.
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2. THE EVOLVING LEGAL FRAMEWORK OF THE ‘MALKI SYSTEM’ (COMMUNITY FOREST MANAGEMENT) IN GUJARAT
Gujarat has a forest area of about 14,857 km2 which constitutes 7.57% of the total geographical area. Fig 1 shows the Forest cover
maps of Gujarat (Indian State of Forest Report, 2019) depicting the various types of forests.
Fig. 1 Forest cover maps of Gujarat (Indian State of Forest Report, 2019)
As per the Indian State of Forest Report, 2019, Gujarat has witnessed an increase of 0.68% in the forest cover as against a
national increase of 0.56% during 2017-2019. Gujarat has evolved gradually its legal framework for protecting and conserving the
forest resources along with ensuring the economic prosperity of the people directly depending on the forests.
Fig 2 displays the milestones of the legal provisions of the evolving Community Forest Management in Gujarat which are then
subsequently discussed. Community Forest Management in Gujarat has evolved from different approaches to forest management over
the last 70 years. It has progressed from an exclusionary approach that sought to separate local communities from their forests with
the state taking ownership of them to
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ones where people are given increasing responsibility, even to the extent of individual ownership (Sonko and Camara, 2000; Odera,
2004; Couillard et al., 2009; Wooda et al., 2019 ).
Fig 2. Milestones of the legal provisions of the evolving Community Forest Management in Gujarat during 1951-2009
▪ The Saurashtra Felling of Trees (Infliction of Punishment) Act, 1951 : It states that no person either by himself or through
any other person shall, without the written permission of the Collector or any other officer [or] [any Village Panchayat
constituted or deemed to be a Village Panchayat under the Bombay Village Panchayats Act, 1958] duly empowered in this
behalf by the Government, voluntarily fell, appropriate or damage, or cause to be felled., appropriated or damaged, any tree, or
any portion thereof and any person who contravenes this provision shall, on conviction by a revenue officer not below the rank of
a Mahalkari authorised by Government in this behalf, be liable to fine which may extend to Rs 1000 [and which shall not be
less than Rs 50, unless the Revenue Officer inflicting such fine considers it improper, for special reasons to be recorded in
writing, to inflict such minimum amount of fine ] (Bare Acts Live, 2020). The fine collected for breaching the law is recovered as
revenue arrears. The exceptional provision of this act is that any person who helps the government in detecting the incidences
of unauthorised felling of trees is rewarded with up
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to 25% amount of the fine which creates the sense of ownership among masses.
▪ The Act is applicable outside the jurisdiction of the notified forest area also. Cutting of trees under the ‘Reserved category’ (for
e.g. Teak, Blackwood (Shesham), Sandalwood, Mahuda, Khair) requires the permission from the Forest department, while it is
the Revenue department from which the nod is needed to cut trees which do not fall in this category. Worth to note that the
Government of Gujarat, from time to time, as provided in Section 40 (Rules 60 and 63) of Land Revenue Code, 1879, declares
the number and type of the Trees as ‘Reserved Trees’ and the administration and management of such trees is vested with the
Forest department while the remaining are governed by the Revenue department.
▪ Allotment of Forest Land to all cultivators: In the year 1961, Government of Gujarat took a historic decision of the allotment
of forest lands to all cultivators cultivating the forest lands prior to 1st March, 1960 with a ceiling of 8 acres in the case of
cultivators cultivating the land with permission and with a ceiling of 4 acres for the cultivators cultivating the land without
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permission in Panchmahal district and later extended it to remaining Districts of Gujarat and even relaxed the ceiling of 4 acres
to 8 acres (GoG, 1961; GoG, 1964; GoG, 1972)
▪ Rights of Land in the Protected Forest: It is worth mentioning that Dangs district became the focus point in the entire process
of legal reforms of balancing the forest conservation along with protection of tribal rights. The question of conferring occupancy
rights on Dangis in respect of land cultivated on lease by them in the protected forest of Dangs District was under consideration
of the State Government and in the year 1970 it was decided that the land in the protected forest under cultivation in Dangs
District, be treated to have been released from the Forest Area and placed at the disposal of the Revenue Department for
conferring occupancy rights to the Dangis. However, the non-reserved trees on such lands continued to vest in the government
with a provision that the cultivators were entitled to lop such trees for the purpose of cultivation when necessary
departmentally. The rights and facilities had been given to tribal community in protected
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forest, and amongst all the main right was that of the cultivation. Accordingly 58,758 hectors of area (74%) was separated from
the protected forests and occupancy rights of this land were assigned to the tribal community while the remaining 21,155 hector
area was maintained as the protected forest. (GoG, 1970)
▪ Malki Cutting - Phase I: Even after implementing the above directives, the state of affairs for Forest Management didn't
improve as per the expectations and it is here that, in the year 1984, the State Government brought in the Malki cutting
directives that the holder would have to plant 5 times the trees which are to be cut. It was also provided that no cutting of
trees would be allowed unless the age of the newly planted trees is minimum 1 year and that 80% of such trees should be
in good health. The land holder was allowed to keep the wood for burning for his own usage from such cut trees and the
remaining timber and other wood would be disposed through auction by the department and after having deducted the
expenses of the same, 20% of such cost would be paid to the land holder. It was also provided that the land holder would
inform the department about the types of the trees he intends to plant and the department would also provide the plants from
the nearby nursery. Thus, it was reconfirmed that the rights of the reserved and on reserved trees planted by the land holder
would be those of the land holder but the process of cutting and disposal of such trees would be done by the Forest Department.
(GoG, 1984)
▪ Malki Cutting - Phase II: In the year 1991, the State Government amended certain conditions mentioned in the Malki cutting
directives - Phase 1 wherein it was provided that the land holder would have to plant 3 times the trees which are to be cut
subject to the condition that permission of cutting would be given for 50% of the existing trees or number of trees
demanded for cutting, whichever is lower, with a maximum limit up to 10 trees. The condition of allowing a maximum
number 10 tress was not there in the earlier GR of the year 1984. It was also provided that cutting of trees uprooted due to
winds and damaged due to fire would be given permission for cutting. It was also further provided that no permission of cutting
would be given unless the age of the newly
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planted trees is minimum 3 years and that 80% of such trees should be in good health. (GoG, 1991)
▪ Sale of the Forest Produce: In the year 1992, the State Government notified that the Forest Department would dispose the
timber wood and fuel wood which is not required by the land holder and after having deducted the expenses of the same, 50%
of such cost would be paid to the land holder. Thus, the government increased the payable amount the existing 20% to
50%. Keeping the concern of forest development it was also decided that 30% of the amount payable to the land holder would
be paid only when the new trees attain the age of 1 year and remaining 20% would be paid only after such trees attain the age
of 03 years. (GoG, 1992)
▪ Regularising the unauthorized cultivation on forest land: With a focus to conserve the forest and at the same time ensure
the source of livelihood of tribal community and other backward classes, in the year 1997, the State Government enacted
guidelines for regularizing the unauthorized cultivation on the forest land wherein such cultivation was done before 1980 in the
forest area only by the tribal community and other backward classes belonging to the respective tribal area with a ceiling of 8
acres. In addition to this, the State Government increased the percentage of payable amount to the land holders from selling of
five reserve trees (Sandalwood, Blackwood, Teak, Mahuva and Khair) from the existing 50% to 100% after having deducted
the expenses. (GoG, 1997)
▪ Malki Cutting - Phase III: Removing all the inconsistencies in the preceding guidelines, in the year 2005, government
published integrated instructions on Malki cutting from ownership land and outlined that the land holder would have to plant
03 times the trees which are to be cut subject to the condition that permission of cutting would be given for 50% of the
existing trees or number of trees demanded for cutting, whichever is lower, with a maximum limit up to 10 trees. It
was also made mandatory that the age of the planted trees should be minimum of 3 years at the time of seeking the
permission for cutting the trees. Further, it was decided that there should be a gap of minimum 5 years between the two
permissions issued to the land holder for the Malki cutting.
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▪ Overcoming the delays in payment to the land holders: To resolve the payment delay to the respective land holders after the
auction process, in the year 2005, the State Government created a revolving fund of Rs 1 crore for the Dang District. In
addition to this, it was decided that the contractor whose bid was accepted has to deposit 25% of the bidding amount in the
revolving fund on the same day and the same has to be paid to the land holder within the period of 3 days while the balance
75% to be deposited in the revolving fund within the period of 1 month and later 2 months and the same are to be paid to the
land holder within the period of 3 days. It was also mentioned that the expenses related to the auction were to be debited from
the revolving fund. To further speeded the transaction, 1% motivational discount was offered to the trader if the trader who
has bought the goods in auction makes the payment within 15 days from the date of auction and lifts the goods, but since that
amount has to be compensated with the total amount to be paid to the land holder, the Deputy Conservator of Forest would
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acquire prior permission of the land holder (GoG, 2005; GoG, 2006).
▪ Prioritizing the Forest produce sale based on the condition of the land holder: In the year 2007, the State Government
incorporated a humanitarian approach by deciding to treat the applications for cutting the ownership trees on a priority basis
based on the condition of the land holder. It was decided that 25% of the total applications of the given year should be given
approvals on the priority basis, maximum 10%, in the cases of cancer, kidney and heart ailment treatment, maximum 10%, in
the cases of Higher Education (Postgraduate degree) and maximum 5% in the cases of old, destitute, widow or deserted. 2
years later, the State Government included 5% of the total application on the priority basis for the PTC (Primary Teachers
Certificate) studies. (GoG, 2007; GoG, 2009)
3. ECONOMIC BENEFITS OF MALKI CUTTING
The Forest department provided the annual details of the number of beneficiaries of the Malki cutting along with the amount paid
during 1994-2019 which is depicted in the Fig 3. From this figure, it can be seen that a total
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amount of Rs 299.4 crores was earned by the 19,936 beneficiaries till the end of the year 2019. For cross verification and further
analysis, a non-doctrinal approach of data collection was adopted where in top 10 beneficiaries from both - the North Dang division
and the South Dang division representing the entire Dang Forest were selected and detailed information was collected using a
questionnaire. A total of 15 ranges were selected from the district for the study based on the careful assessment of its location from
the district headquarters, funds disbursed through Malki and the status of the educational and health infrastructure in the area. The 8
ranges selected from the Northern part of the district were Kalibel, Singana, Bhenskatri, Lavchali, Subir, Ahwa-West, Piplaidevi and
Bardipada. while the other 7 ranges selected from the Southern part of the district are Chichigaontha, Chikhli, Galkund, Sakarpatal,
Shamagahan and Waghai. The field survey results corroborated very well with the data provided by the Forest Department.
4. QUANTIFYING THE EFFECTIVENESS OF THE ‘MALKI SYSTEM’ (COMMUNITY FOREST MANAGEMENT) IN GUJARAT:
CFM approach evolves with the (i) concern of the government that there will be complete deforestation once the right to timber are
given to communities and (ii) the fear of the communities that government will take back control of the forest and officials will return
to the past rent-seeking
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behaviours or else the benefits of the CFM will be captured by the local elites and further marginalize the poor (Gilmour and Fisher,
1991; Buchy and Hoverman, 2000; de Jong et al., 2010; Kamoto et al., 2013; FAO, 2016). The CFM ‘Malki System’ which gradually
evolved over decades indeed brought a significant change in the life of the tribals of Dang District of Gujarat. With the introduction of
this system farmers, who are instrumental in ‘forest conservation’, now have a sense of security for their livelihood. With the provision
that farmers can take loan against the teak trees grown on their land have further enhanced both - the economic security of the
farmers along with the efforts towards forest conservation and afforestation. As per the estimations of the Forest Department, a total
of around 800,000 new trees were planted in Dang Forest during 1994-2019 and a total amount of Rs 299.4 crores has been earned
by the 19,936 beneficiaries till the end of the year 2019. This statement speaks volumes regarding the success of the CFM Malki
System practised in Gujarat and can be considered as a classic case of ‘Sustainable Development’. It has not only paved the path for
increasing the richness of the Dang forest but has also helped the people to improvise their standard of living.
5. CONCLUSIONS
CFM is indeed an effective way to achieve the sustainable management of forests, however, given the limited field data and the
variable results there is an urgency to build evidence of diverse and successful implementation to pave way for the wider application
of this approach. The present study unfolds the journey of the evolving CFM ‘Malki system’ practised in the State of Gujarat, India
since many decades and puts forward the positive impacts i.e. intensity of afforestation and economic prosperity of the Tribal
community of Dang thereby contributing to the 5 of the 17 Sustainable Development Goals which are (i) SDG 1 ‘No Poverty’ (ii) SDG
2 ‘Zero Hunger’ (iii) SDG 3 ‘Good Health and Well-being’ (iv) SDG 13 ‘Climate Action’ and (v) SDG 15 ‘Forest Conservation’.
The salient findings of the study are as follows:
▪ Significant afforestation happened in the Dang Forest during 1994-2019 as around 800,000 new trees were planted during this
time period. Considering the global rate of deforestation along with the ambitions international targets of afforestation, the
success witnessed in the Dang Forest is noteworthy.
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▪ A total amount of Rs 299.4 crores has been earned by the 19,936 beneficiaries during 1994-2019 which conveys the economic
success of the CFM practised in the Dang Forest.
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▪ Juxtaposing the Environmental Success along with the Economic Success, the CFM Malki System practised in the state of Gujarat
is worth considering for being drawn upon or replicated in other parts of the world.
ACKNOWLEDGEMENTS
The authors are grateful to the Forest Department and Revenue Department, Government of Gujarat for giving the requisite data
needed for the study. The first author also acknowledges the support extended by the Forest Department Officials during the field
survey done by him. Both the authors express their deep sense of the appreciation to the anonymous reviewers with whose support
the content of the manuscript improvised significantly.
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Ph.D. Scholar, Gujarat National Law University, Gandhinagar, e-mail: dineshdasa@ymail.com
———
1
I acknowledge the guidance and contribution of my Ph.D. Supervisor, Prof. (Dr) Shobhalata Udapudi, Professor of Law, Gujarat National Law University.
Disclaimer: While every effort is made to avoid any mistake or omission, this casenote/ headnote/ judgment/ act/ rule/ regulation/ circular/ notification is being circulated on the condition and understanding that the publisher
would not be liable in any manner by reason of any mistake or omission or for any action taken or omitted to be taken or advice rendered or accepted on the basis of this casenote/ headnote/ judgment/ act/ rule/ regulation/
circular/ notification. All disputes will be subject exclusively to jurisdiction of courts, tribunals and forums at Lucknow only. The authenticity of this text must be verified from the original source.

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