Executive Summary
Background
“Serious
conflicts have emerged between the people of the district and the State in
identifying development priorities of the district, despite a wide range of
administrative mechanisms and democratically elected bodies that exist with the
potential of evolving a public rationale through participatory processes of
decision making. A most important
conflict area has been in including environmental considerations in economic,
social and physical development planning processes of the district. The
following factors illustrate these aspects further:
1.
The
total neglect by the State Government in following through on the interventions
suggested by the Environmental Master
Plan Study for “sustainable development” of the district, though the
recommendations were submitted over a year ago.
2.
Despite
constitutional requirements, the State
Government has dragged its feet in announcing the elections to the Mangalore
City Corporation, where most of the industrialisation is to take place, making
it the only city in the State not to have an elected Corporation. Consequently, local development planning
processess and institutions in the city of Mangalore have been totally under
the control of the State.
3.
The
industrial development priorities set by the State Industries Department,
Karnataka State Industrial Development Authority, the District Industries
Centre and the Karnataka State Industrial Investment Development Corporation
has significantly distorted the process of urban and industrial development
envisioned in the Greater Mangalore
Plan prepared by the Mangalore Urban Development Authority earlier this
decade. This document, as per law, is
prepared for a period of 20 years, i.e., from 1991-2010 A.D. Such drastic changes in land-use planning
processes has brought to question the Government’s commitment to planned urban
and regional development, especially in the context of the Town and Country
Planning and Municipal legislations.
4.
The
State Government’s industrial development policies for the District have come
in conflict with the priorities set by
the Dakshina Kannada Zilla Panchayat, which recently passed an unanimous
resolution against the siting of highly
polluting mega industries in the district, particularly thermal power
plants, on the basis of social,
economic and environmental concerns.
5.
The
citizens of Dakshina Kannada have become highly articulate about their concerns
on the impact of the development priorities set by the State, questioning the
lack of participatory planning and inclusion of local concerns. They have organised themselves into a
Dakshina Kannada District Environment Federation, and have come out with a
people’s document for the development of the district centred around the
principle of “sustainable development”.
At some points the conflicts have been so serious that huge rallies were
organised last year to protest development priorities set by the State and
Centre. In December 1995, there was a
serious law and order problem in the district as the fisherfolk led a massive
agitation against the pollution of the sea by the newly commissioned Mangalore
Refineries and Petrochemicals Limited.
This resulted in heavy police action, serious injuries to several
agitators due to firing and eventually forced the Government of Karnataka to
sign an order that no more mega industries would be sited in the district till
such time a detailed environmental “carrying capacity” of the district is
conducted.
6.
Despite
the Government order requiring “carrying capacity” studies, clearances have
been accorded to several major industrial ventures and orders issued for acquisition of several
thousand acres of land, largely comprising of prime agricultural land, village
forests and environmentally sensitive areas along rivers, estuaries and the
coast. This has led to a series of
Public Interest Litigations both at the High Court and the Supreme Court, most
significant of which has been the Supreme Court judgement constituting an
expert review by the National Environmental Engineering Research Institute
(NEERI) from the context of environmental
and conformity with legislative clearance procedures, as regards the siting of
the Cogentrix led 1,000 MW coal based thermal power plants in the district.
NEERI submitted its report recently to the Supreme Court and has indicted both
the Government and project developers for violating fundamentally various
environmental clearance norms. It has
also strongly criticised the total lack of participatory planning processes and
called for a rigorous effort in evolving an operational framework to include
local environmental concerns and endogenous development choice options.
7.
The
demographic and ecological diversity of the district is extremely unique in the
Western Ghats region. A wide variety
of demands are therefore made on the natural resource base, and historically
the people of the district have been highly entrepreneurial, choosing largely
such life-support options as are supported by the local natural resources. A particularly strong indicator of this
factor is the high reliance of the local population on traditional life-support
systems such as agriculture, fisheries and food processing, supported by
environmentally benign operations in the areas of trade, commerce, banking,
education and the service sectors. This
has led to a high social development index and very high levels of literacy
compared to the rest of the State.
8.
Being
a thickly forested, riverine and coastal region, the district is also a high
priority area for ecological conservation opporutunities.
9.
The
degree of participation in community oriented development programmes is high
considering similar situations across other coastal areas in the State. The Joint Forest Management Scheme involving
formation of Village Forest Committees in collaboration with the Karnataka
State Forest Department has had sufficiently strong responses in the
district. The farming community has a
relatively high awareness of emerging agricultural trends and has a highly
successful and progressive farming journal.
The Fishing community is highly organised with a 800 year-old
traditional community decision making forum setting the priorities.
10.
The
region also demonstrates a complex cultural composition with strong
representations from the Hindu, Muslim, Christian and the Jain faiths.
11.
The
district was till over three decades ago under the administrative control of
the Madras Presidency and thereby has a very strong colonial influence in the
administrative mechanism and societal responses, especially in the urban
areas. This offers an unique
opportunity in assessing the dynamics of including environmental considerations
in setting development priorities over traditional, colonial and post-colonial
processes.
In
cognisance of the above, an appraisal
of emerging policy directives within the framework of the decision making
processes for socially and environmentally sensitive development planning
processes of the district becomes
highly relevant. This would require a
critical look at existing legislative, administrative, regulatory and
democratic processes and proposing progressive approaches to respond to the
emerging needs of the civil society.
The study, thereby, becomes an extremely important contribution in the
development planning of the district and could provide a new direction in
articulating the interventions proposed by the Environmental Master Plan
Study.
Objectives
of the Study
In keeping with the above purpose, the present
Study: “Integrating Environmental
Considerations in Economic Policy Decision Making - Case Study of Dakshina
Kannada” has been carried out over a period of five months, and in a manner
which is more exhaustive than originally proposed.
In
general terms, the study emphasises on building upon the
interventions proposed in the Environmental Master Plan Study for Dakshina
Kannada (EMPS), prepared by the DANIDA-DFEE team. But the developments since the submission of the EMPS Plan
suggest that unless there is a drastic re-think on the part of the Government,
it is likely that the EMPS will not be implemented and the development in the
district will adopt a path that agitates against the stated goals of EMPS. Therefore, it was felt necessary to provide
a detailed analysis of the prevailing developmental planning processes of the
district, and its interlinkages to regional and national development
demands.
In specific
terms, the present study evaluates the current trends of
opinion on the emerging developments in the Dakshina Kannada district and
presents a scenario of the various areas where conflicts have emerged in
developmental paradigms chosen by various interest groups. On the basis of this, and in keeping with a
development paradigm based on endogenous choices and in keeping with the
objectives of sustainable development, policy recommendations are offered.
Structure
of the Report
The Study is reported in four Sections:
Section
A:
This section provides a brief overview of the
physical, environmental and cultural features of the district. It offers an
exhaustive introduction to the EMPS process, as the same has been evolved at a
time when the district is undergoing radical changes in its socio-economic
developmental pattern. On the basis of
this and a brief overview of the legal provisions that govern environmental
protection and planning in India, the developments in the district are analysed
and their integration in the economic
policy decision making processes examined, taking into consideration the
various shades of opinion as they exist in society. Based on this, a set of policy recommendations are offered.
Section
B:
This section is made up of four case studies,
offering different sets of examples and experiences in the development planning
of the district and their repercussions on civil society processes, quality of
life and environment. One Case Study
has been done in an exhaustive detail, that on the siting of thermal power
plants, as this is one intervention in the district that will drastically alter
the pattern of socio-economic development and environmental character of the
district. The other three case studies
have equal and far reaching impacts.
Section
C:
A compilation of legislations, norms and policies
relating to environmental protection, pollution control and development
planning in India.
Section
D:
A pictorial representation of key developments
taking place in the Dakshina Kannada district.
Methodology
followed:
The Study adopted a multitude of approaches in
arriving at its analysis and conclusions.
Some illustrative methods included:
·
Interview with key actors in the development
scenario.
·
Analysis of policy and legal documents.
·
Literature survey.
·
Analysis of reporting on developments in the
district from an exhaustive collection of journal and newspaper articles
(vernacular included).
·
Participation in a variety of meetings, workshops,
dialogues, and such other fora organised by local communities, academic
institutions, business organisations and government agencies.
·
Review of video footage on the situation of the
communities displaced by industrialisation earlier in the decade.
·
Following the developments and review of arguments
placed by various parties in the process of litigation on development projects
coming up in Dakshina Kannada.
Contents
of the Report
Section A
|
Chapter
1: An Overview of Karnataka State and
Dakshina Kannada District |
|
|
1.1 State of Karnataka ·
Socio-economic Context ·
Forests ·
Rivers ·
Urban and Industrial
Pollution |
01 |
|
1.2 An Overview of Dakshina
Kannada District ·
Introduction
·
Infrastructure ·
Administration ·
Public Utilities and Services ·
Educational Institutions |
03 |
|
1.3 Social Conditions ·
Present Population and Growth Patterns ·
Health ·
Education ·
Occupational Health ·
Women ·
Weaker Sections in Development ·
Development Scenario |
06 |
|
1.4 History of Dakshina Kannada ·
The golden era of Vijayanagar Empire ·
The Portuguese and their effect on the
Culture of the Region: ·
The Nayaks and other local chiefs: ·
Period of Haider Ali and Tippu Sultan: ·
British Raj: ·
District’s role in the Struggle for independence |
08 |
|
1.5 Languages of Dakshina Kannada |
10 |
|
1.6 Communities of Dakshina
Kannada ·
Billavas ·
Nadavas ·
Brahmins ·
Jainas ·
Mogaveeras: ·
Vishvakarmas ·
Christians: ·
Muslims: |
11 |
|
1.7 Culture and Recreation ·
Temples: ·
Nagabana ( Sacred Groves) and Naga pooja: ·
Bootha Aradhana ( Spirit worship) ·
Yakshagana and Thala-maddale: ·
Madhva Philosophy and Ashta Mutts: ·
Recreation: ·
Inheritence through female line |
13 |
|
Chapter 2 An Overview of the
Developmental Trends in Dakshina Kannada |
|
|
2.1 Emerging development policies
in the State ·
Infrastructure Bottlenecks ·
Power Shortages ·
Need for a Policy ·
Environmental considerations in implementation
of prevailing policies |
16 |
|
2.2 Focus on Dakshina Kannada ·
Local Community Response ·
Environmental Master Plan Study |
19 |
|
2.3 Impacts of Industrialisation
the environment and development of the district ·
Background ·
Investments in Dakshina Kannada |
21 |
|
Chapter 3: Environmental Master Plan Study For Dakshina
Kannada District |
|
|
3.1 Background ·
Introduction to EMPS ·
Development Objectives of the EMPS ·
Salient features of the EMP ·
Interventions ·
Impact of Interventions on NR & ES ·
Implementation Plans for Interventions/Action
Plans |
23 |
|
3.2 Urban and Industrial
Development trends identified by EMPS ·
Industrial Development Þ
Present Industrial situation Þ
Industrialization *
Potential Environmental Impact ·
Urban Development Þ
Urban areas and Future Development Þ
Urban Infrastructure and Environmental Issues *
Water Supply *
Wastewater and Sanitation *
Solid Waste Disposal *
Energy Supply *
Traffic *
Quality of Urban Life |
32 |
|
3.3 Economic Conditions ·
Present District Domestic Income Þ
Primary sector Þ
Secondary Sector Þ
Tertiary Sector Þ
Employment ·
Development Scenario Þ
Sector Development Þ
Employment ·
Economic Instruments for Sustainability ·
Indicators for Socio-Economic Welfare ·
Areas of Concern |
36 |
|
3.4 Interventions proposed by
EMPS ·
Introduction ·
Description of Interventions ·
Impact of Interventions on Natural Resources and
Ecosystems ·
Interlinkages between Interventions on Natural
Resources and Ecosystems ·
Implementation Strategy ·
Organisational Framework |
41 |
|
3.5 Sustainable Development
Objectives for Natural Resources and Ecosystems |
65 |
|
3.6 Targets Against Indicators
for Natural Resources and Ecosystems |
69 |
|
3.7 Current Status |
79 |
|
Chapter 4 Integrating
environmental Considerations in Economic Policy Making Processes for Dakshina
Kannada |
|
|
4.1 Political Participatoriness,
including civil society processes ·
The State vs. the Local ·
Civil Society response ·
Responses of legislators and parliamentarians ·
Response of the academia ·
Response of the Intelligentsia ·
Response of the Seers ·
Responses of Project Affected Communities ·
Response of the Media |
84 |
|
4.2 Integrating Environmental
considerations in Development Planning ·
Scenario subsequent to the DANIDA-DFEE EMPS
report ·
Carrying Capacity of Dakshina Kannada ·
Coastal Management Plan ·
Political attitude to integrating environmental
considerations |
95 |
|
4.3 Conformity with Environmental
legislations, norms and policies ·
Land use Planning ·
Role of the Karnataka State Pollution Control
Board ·
Role of the Ministry of Environment and Forests
and the State Department of Ecology, Environment and Forests |
99 |
|
Chapter
5 Environmental Legislation in India |
|
|
5.1 Constitutional Provisions |
103 |
|
5.2 Relevant Environmental
Treaties Signed/Ratified By India |
104 |
|
5.3 Environment Legislations in
India |
107 |
|
5.4 Fiscal incentives for
Pollution Control |
112 |
|
5.5 Karnataka Guidelines
for Siting of Industries |
113 |
|
Chapter 6 Policy Recommendations |
116 |
Section B
|
Case
Study 1: Siting Of Thermal Power
Plants In Dakshina Kannada |
|
|
1.1 The Privatisation of Power
Generation ·
The Power Crisis ·
Incentives to Private Sector ·
Performance under the Reforms Process ·
Pushing ahead with Power Sector Reforms ·
The Karnataka Scenario |
01 |
|
1.2 Focus on Dakshina Kannada |
06 |
|
1.3 The rationale for siting
Thermal Power Plants in Dakshina Kannada: ·
Site Selection ·
Environment Impact Assessment ·
Thermal Projects Proposed in th Nandikur area |
08 |
|
1.4 An Evaluation of the
Processes involved in the siting of Thermal Power Plants in the District ·
KPCL project
Þ
Chockalingam’s Environment Impact Statement *
Significant Project Impacts *
Land Requirements *
Land use *
Social Impact *
Environmental Impacts Þ
Summary ·
NTPC Project Þ
Brief Description Of The Proposed Project Site
And Its Environment Þ
Environmental Appraisal Committee Report ·
Mangalore Power Company Proposal ·
Nagarjuna Thermal Power Project and the Barge
Mounted Projects ·
Mangalore Evacuation Project ·
REIA of Mangalore Power Company Þ
Sagar Dhara’s Environment Impact Statement |
11 |
|
1.5 An evaluation of the process
of Public Interest Litigations against the siting of the Cogentrix thermal
power station ·
Petition of Janajagriti Samithi ·
Petition by Maneka Gandhi ·
The NEERI Report ·
Response of Ministry of Environment and Forests ·
Response of Karnataka State Pollution Control
Board ·
Response of State of Karnataka and Mangalore
Power Company ·
The Hearings |
55 |
|
1.6 Analysis and Discussion ·
Siting aspects ·
Pollution Control ·
Land requirements ·
Clearance Procedure ·
Were the Clearance Conditions met ·
New Clearance initiatives |
71 |
|
Case
Study2: Mangalore Refinery And
Petrochemicals Ltd. |
|
|
2.1 The Project ·
The Product ·
Project Infrastructure ·
Environment Impact Assessment |
77 |
|
2.2 Displacement And
Rehabilitation ·
Compensation and Promise of Jobs ·
Dispute and Settlement |
79 |
|
2.3 Environmental Concerns & Protests Over Threat Of Pollution ·
Resistance to laying the effluent discharge
Pipeline ·
Government Order on Carrying Capacity ·
Enforcement of Conditions ·
Other Environmental Concerns |
81 |
|
Case Study 3: Engelhard Highland Dyes Manufacturing Unit
|
|
|
3.1
Background |
87 |
|
3.2 Representations to the
regulatory agencies |
88 |
|
3.3 Representations to Elected
Representatives |
89 |
|
Case
Study 4: Siting of Industries near
Mangalore City |
|
|
4.1 Steel Project by JESCO |
91 |
|
4.2 Indo-Gulf proposal to set up a Copper Smelter |
93 |
|
4.3 Nagarjuna Steel Project ·
Conflicting Siting Criteria ·
Environmental Concerns ·
Public Interest Litigation |
94 |
Section C
Part 1: Legislations
·
Water (Prevention and Control of Pollution) Act,
1974
·
Air (Prevention and Control of Pollution) Act,
1981
·
Environment Protection Act, 1986
·
Nagarpalika Act, 1992
·
Panchayat Raj Act, 1992
Part 2: Notifications
·
Ministry of Environment and Forests Notification
on Coastal Regulation Zone, 1991
·
Ministry of Environment and Forests Notification
on Envirornment Impact Assessment of Development Projects, 1994
·
Ministry of Environment and Forests Notification
on Emergency Planning, Preparedness and Response for Chemical Accidents, 1996
Part 3: Guidelines
·
Ministry of Environment and Forests Guidelines for
siting of Thermal Power Plants, 1987
·
Ministry of Environment and Forests Guidelines for
siting of Industries, 1985
·
Ministry of Environment and Forests Guidelines for
the Development of Beaches, 1983
Part 4: Government
Orders and Resolutions
·
Government of Karnataka order requiring Carrying
Capacity of Dakshina Kannada district, 1995
·
Government of Karnataka order introducing the
Joint Forest Planning and Management Scheme in the State, 1993
·
Resolution of the Dakshina Kannada Zilla Panchayat
against the industrialisation of the district, 1995
Section D
Photo-documentation of Significant Developments in
Dakshina Kannada
Project
Consultant
Environment Support
Group
153, 5th
Main, 4th Block
Banashankari 3rd
Stage, 2nd Phase
Bangalore 560 085
Telefax:
91-80-2262571/6676289
Fax: 91-80-2274699
Email:
[email protected]
Principal
Investigator
Leo F. Saldanha
Coordinator -
Environment Support Group &
Project Manager of the
Study
Project
Consultants
Dr. Subbarayan Prasanna
Professor of Urban
Planning
Indian Institute of
Management
Bangalore
Mr. H. C. Sharathchandra
Project Advisor
DANIDA-DFEE
Environmental Master Plan Study for Dakshina Kannada
Mangalore
Dr. Vathsala
Research Fellow
Indian Institute of
Management
Bangalore
Project
Support Team
Ms. Neetha Shetty,
Reseach Associate, Environment Support Group
Ms. D. G. Poornima,
Research Associate, Environment Support Group
Mr. K. R. Mallesha,
Office Support, Environment Support Group
Mr. K. S. Nagaprasad,
Research Associate, Environment Support Group