POLICY
On
Development
of Eco-Tourism
in
Himachal
Pradesh
Himachal Pradesh Forest Department
May, 2001
1. Introduction:
Himachal
Pradesh is a hill state nestled in the western Himalayas.
The state takes pride in its natural beauty manifested by the snow clad
mountains; alpine pastures containing colourful flowers; landscape dotted with
perennial streams, lush green forests, herds of grazing animals, picturesque
villages, natives in traditional dresses, and indigenous architecture.
The traditional hospitality and crime free society has added to the
natural attractions of the state, making it one of the most sought after tourist
destination in India.
However,
what is generally publicised about this vast plethora of attractions in the
state in the name of tourism is just the cool climate and hotel facilities
available at various known destinations like Shimla, Manali, Dalhousie or
Dharamsala. Tourists, in the
absence of comprehensive tour packages, reach the known destinations on their
own and start looking for any worthwhile tourist attractions only after landing
at a place. Their short stay at a
place allows them to visit only the nearby sites, which have become overcrowded
and already started showing negative environmental effects of such tourism. On
the other hand, the tourists are deprived of opportunities to enjoy the rural,
remote and the most scenic parts of the state.
Moreover, benefits of such mass tourism are reaped largely by the city
dwellers. The state and the large
majority of rural people are, therefore, not able to harvest this huge tourism
potential.
The
present policy has been framed with the intention to trap this huge tourism
potential in the state by organizing tourism activities in an ecologically
friendly and culturally acceptable way so that the State, the tourists, as well
as the local people can benefit from such ventures.
2.
Concept Defined:
This
policy is based on the hypothesis that involvement
of local communities in the tourism (called ‘eco-tourism’ herein after)
would support their livelihood needs and consequently create their direct stake
in conservation of local culture, ecology and environment.
‘Eco-tourism’,
in a very broad sense, means venturing into and enjoying nature in such a way as
to assure that the negative impacts on the cultural and natural environment are
minimized and mitigated. It is,
therefore, responsible tourism that, besides being ecologically and culturally
sensitive, helps the local communities in realizing the social and economic
benefits.
More
than 90% population of the state lives in rural areas, where, in the absence of
worthwhile income generation opportunities, people have to largely live on
subsistence agriculture, sale proceeds of NTFP collected from the forests and
occasional labour provided by various government departments.
This concept of ‘community based
eco-tourism’ would go a long way in providing better income generation
options to the rural people. This
would also mean less dependence upon the natural resources in as far as it
amounts to removal of produce from these areas.
There would be, moreover, greater incentive in conservation of local
traditions, culture, heritage and environs, as these would be seen as aiding in
local economy rather than an impediment to it.
The
‘community based eco-tourism’ would also help in creating better
understanding and worldview about the state.
Moreover, with the rising consciousness about rural livelihoods and
conservation – both cultural and environmental - needs, a large number of
responsible tourists would have a reason to make the state a prime tourist
destination.
3.
Objectives:
This
‘community based eco-tourism’ policy in the state is proposed with a
long-term goal of conserving the rich cultural and ecological heritage of the
state, so that various benefits from this conservation endeavour, including the
benefits by way of tourism, could continue to accrue to generations to follow.
The
policy also aims at achieving the following immediate objectives:
-
To enable the local communities in managing eco-tourism for optimum
economic benefits to them.
-
To develop ways and means to attract responsible nature and adventure
loving tourists to the state so as to broaden the tourism base and place the
state firmly on the international tourist map.
-
To develop infrastructural facilities for such tourism.
-
To develop and enforce protocols to minimize the negative impacts of
traditional tourism on the ecology and social fabric of the area.
-
To protect cultural integrity of local people and use the same to further
eco-tourism concepts.
- To generate revenues which could be ploughed back for the maintenance and preservation of the environment.
4.
Area of Operation:
In
the state about 2/3rd of total geographical area is designated as
forests, out of which about 12% area is under Protected Area Network.
All these areas are dotted with scattered presence of villages and
hamlets. Paths leading to some of
the most beautiful and breathtaking sites in the state pass through these
hamlets, which fall within and outside the PA network.
To
benefit the maximum number of people in the state through eco-tourism, it is
envisaged to encompass various treks, which have potential to provide insights
into the cultural and ecological diversity of the state.
These treks, to be marketed as ‘eco-trails’, would be suitably named
after some important local feature. For
example, the eco-trek to and from Churdhar would be named “Churdhar
Eco-trail” and the one from Dharamsala to Triund as “Dhauladhar
Eco-trail”. Under the first phase
of the programme, one to two ‘eco-treks’ per district would be identified
and developed. As the concept
catches on and the communities start seeing benefits accruing to them, more and
more viable ‘eco-treks’ would be added to the programme.
The concept of ‘eco-treks’ has been proposed for the reason that
bridle/ inspection paths to some of the most picturesque areas in the state are
already existing and with little expenditure can be made eco-tourism worthy.
Moreover, it is easier to identify the beneficiaries/ stakeholders along
this essentially linear strip, making the management of the programme easier.
The
State also has 32 Wildlife Sanctuaries that can provide unique opportunities for
observing nature in its pristine conditions. Camping sites can be developed
within these and similar eco-tourism packages created as for “eco-treks”.
5.
Target Group/ Tourist Profile:
The
proposed eco-tourism policy incorporates much more than the commonly perceived
tourism of just enjoying the cool climes of the state without bothering about
its effects on the environment. It
is rather proposed to be an educational experience for the tourists.
Under this programme the tourists would be taken on a journey through the
rich cultural and ecological diversity of the state and would be exposed to the
customs and rituals of the area they visit.
And all this under continuous reiteration of conservation values in their
sub-conscious mind.
The
following tourist profile, of both national and international tourists, for such
type of programme is envisaged:
-
Student Groups from Educational Institutions.
-
Groups from various professional organisations/ business concerns.
-
Elite and responsible tourists in family groups.
-
Keen individuals looking for trekking, adventure and exploring something
new.
6.
Strategies:
To
achieve the above objectives, following cost-effective strategies are proposed:
6.1
Infrastructure Development:
Infrastructure requirements for programmes formed under this policy would fall
under the following three broad categories:
6.1.1
Accommodation:
To put the programme into practice at the earliest it is imperative to look for
and arrange existing accommodation facilities, which would be kept modest. The following initial arrangement is suggested:
The
State Forest Department (SFD) owns and maintains a network of Forest Rest Houses
(FRH) and Inspection Huts (IH), in almost all parts of the state.
Located, as they are, at vantage locations, these FRHs and IHs provide a
bird’s eye view of the scenery around and convey a feeling of staying in
wilderness, albeit under the watchful eyes of forest field staff.
Most of these FRHs consist of two bedrooms, with attached toilets, and a
common living/ dining space, a design to suit the requirements of touring
officers. These FRHs can, after
suitable alterations/ modifications and working out modalities for use by
touring officers, be put to use for the purpose of enhancing eco-tourism.
Bigger
groups can also be handled at these places by pitching tents in the FRH
compounds/ camping grounds. SFD, at some places, also maintains tents and related field
equipment including camp cots, sleeping bags, mats etc.
This facility could also be utilised.
Some
host families, having reasonable traditional accommodation in the villages
enroute these eco-treks, would be identified to accommodate tourists on paying
guest basis (adopted from eco-tourism model in Annapurna Sanctuary, Nepal).
This would ensure immediate economic benefits to the host families.
As the programme develops, more local people would be encouraged to
modify one/ two of their rooms for such purpose. Suitable technical know how on the specifications for such
accommodation and modalities for keeping paying guests would be provided to the
host families.
6.1.2
Trek-Routes:
Most of the Eco-trails in the state would fall on the network of bridle paths
and inspection paths being maintained by the SFD and village panchayats.
Moreover, FRHs are located within one day’s trek (about 15 kilometers)
from each other along most of these paths.
Some of these paths would be developed further by providing lean-tos and
resting places enroute. Appropriate
directional and interpretative signage would be affixed along the route at
appropriate places to provide information to the trekkers and for their
reassurance about the correctness of their movement. Further thrill would be added to the trek by providing the
tourists with route maps and asking them to find their way by using the given
signage. The existing network of such trekking routes (bridle/ inspection paths)
would be adequate to launch the programme.
6.1.3
Information Centres:
The tourist groups visiting various eco-treks under the programme would need to
be exposed to a pictorial and interpretative exhibition about the state, its
customs, scenic beauty, richness of bio-diversity, characteristics of the area
and issues of tourism concern, before being actually taken on the eco-track.
It is for housing this interpretative exhibition that buildings need to
be constructed at appropriate places.
To begin with, low cost temporary sheds with tin roofs would be put up in the compound of FRHs, from where the eco-tours would commence. It would provide the tourists an easy and relaxed access to this exhibition. In addition it would also save on the expenses related to watch and ward and general maintenance as the FRH watchman would take care of it.
6.2
Capacity Building: The
proposed approach to this ‘community based eco-tourism’ is new to the state
and would need orientation and capacity building of both the managers and the
communities in this respect.
6.2.1
Managers: The
managers would include officials of the SFD and other cultural and tourism
related departments/ organisations of the state government.
Since major responsibility in proposed eco-tourism activities in the
state would rest with the local communities, the role of the managers would be
mainly that of facilitators. At
many places, the facilities available with the officials viz. FRH etc. would be
put to use for the purpose of eco-tourism.
Most of the eco-treks would be passing through forests and also link to
temples, palaces or other heritage buildings.
The
managers would, therefore, need to be provided orientation in their new role as
facilitators and in strengthening the local community organisations for the
ultimate aim of conserving the local heritage.
They would also need to be enabled to design innovative ways to promote
eco-tourism. Short term training
programmes, participation in seminars, workshops and conferences and exposure
visits to successful community based eco-tourism areas would definitely help the
managers in acquiring knowledge and skills required for the success of this
programme.
6.2.2
Communities:
Community involvement in the programme is envisaged at two levels i.e management
level and at the level of providing services.
This
programme relies heavily upon the ability of the local communities in managing
the eco-tourism, even if under facilitation by the managers.
The role of communities in this programme would be to manage the
eco-tourism initially at the local and ultimately at the state level.
For this, local committees would need to be formed and imparted training
in group dynamics and its management, eco-tourism planning, resource sharing,
rights and responsibilities, record keeping, etc.
The
other level of community involvement in the programme would be by way of
providing services to the tourists viz. guides, porters, FRH attendants, cooks,
park wardens, hosts for paying guests etc.
All these categories would need training for their respective jobs.
Souvenir/ local handicraft shops could also be set up by local communities or
the eco-tourism Society.
Short-term
locally organised workshops for skill development and exposure visits to
successful eco-tourism areas will help the local communities in handling this
new venture.
6.3
Extension/ Publicity:
Although it is expected that interest in eco-tourism will spread more by word of
mouth than by any other means, initial publicity of the scheme is a sine-qua-non for its success. Following
publicity/ extension measures will be put in place:
An
attractive web-site will be developed and linked with existing tourism
web-sites. Advertisements,
brochures and pamphlets giving details of the various packages and
‘eco-treks’ would be prepared and widely circulated.
Liaison
with HPTDC and other tourist agencies of repute would be established and
strengthened for directing interested groups to this scheme.
These agencies would be offered tour packages, including use of
infrastructure at reasonable rates. An
initial tour for representatives of these agencies and other tour operators
would be considered, gratis, to orient
them to the scheme.
7.
Implementing Agency:
The
programme as envisaged under this policy is proposed to be implemented through a
number of Eco-tourism Societies (here-in-after called The Society), each having
its own geographical area and unique activity, such as trekking, nature walks,
camping, wildlife observation etc..
Implementation
of the programme in a Society mode has been preferred for obvious reasons of
flexibility with the Societies to raise funds both for infrastructure
development and working capital and ploughing back the profits into the
programme. The inherent flexibility
available to the Society will facilitate incorporation of changes in response to
local needs and experiences. This model will also have the crucial advantage of
encouraging local community participation and involvement.
Although
they would be practically autonomous, functioning of these Societies would be
overseen by the SFD, which would play the role of facilitator in evolving broad
policy prescriptions, net-working with domestic and foreign agencies for raising
funds, coordinating with various government departments, and so on.
A special cell, headed by a Conservator of Forests (Nodal Officer,
Eco-tourism) has been created in the o/o Pr. Chief Conservator of Forests to
look after eco-tourism in the state. The
SFD has already taken initiative in forming a Core Group on Eco-tourism
comprising of five officers to act as think tank on the subject and to deal with
issues related to the subject.
In
addition, an ‘Eco-tourism Advisory Committee’ under the Chairmanship of
FC-cum-Secretary (Forests) and having following members would be set up to
formulate broad policy guidelines, to seek government approvals and to steer the
programme.
2.
PCCF / APCCF
Vice Chairman
3. Finance Secretary
Member
4.
MD, HPTDC
Member
5.
Director, Tourism
Member
6.
Member Secretary, State Council for Science & Technology
and Environment Member
7. Member Secretary,
Pollution Control Board (H.P.)
Member
8. Director, TCP
Member
9, 10.
2 Non official Members (eminent persons activelyinvolved in environmental
conservation, ecology,tourism)
Member
11
CF (Nodal Officer, Eco-tourism)
Member Secretary
The Committee would also co-opt two members on rotational basis from the Eco-tourism Societies set up under the programme. The Committee may also co-opt specialists as special invitees, if required.
7.1
Structure of the Societies: FC-cum-Secretary (Forests) would be ex-officio patron of
eco-tourism societies set up under the programme. The governing body of the Society would include members drawn
from a wide spectrum of public life - public servants, representatives of
immediate stakeholders, NGOs etc., with a senior Forest Officer as its
chairperson. The Society would be
duly registered under the Societies Act. The
executive committee of the Society would comprise of local Forest Officers and
representatives of stakeholders. Committee
may co-opt experts as special invitees.
Till
the local communities are adequately empowered, member secretary of the Society
would be a Forest official at a senior level to provide the authority required
to manage inter-agency linkages for success of the programme.
Adequate financial and managerial autonomy is essential for this officer
to effectively implement the programme.
The society would have its own bye-laws based on the prototype formulated by the FD. The Society would undertake to abide by the policy guidelines on eco-tourism as formulated/ modified by the government from time to time. These local level societies would be suitably named after some locally important feature viz. ‘Himalayan Nature Park Eco-tourism Society, Kufri’, ‘Chansil Eco-tourism Society’, ‘Potter’s Hill Eco-tourism Society’ etc. Agencies involved in the implementation of the programme with broad responsibilities are depicted in the diagram below:
7.2
Functioning of the Societies: The Eco-tourism Societies would
be given adequate autonomy to be able to perform effectively.
7.2.1
Raising of Funds: The
Society will raise funds towards working capital and development of
infrastructure.
Even when the existing infrastructure of the SFD is proposed to be used
for the programme, it will have to be modified, upgraded and refurbished to suit
the requirements of eco-tourism.
At many places toilets would need to be built and water supply augmented.
At almost every place extra beds, furniture, crockery and utensils would
need to be procured to be able to handle tourist groups.
In addition, furnishings and fittings would need replacement at almost
every place. The
societies would make efforts to raise the required funds through tour operators,
centrally sponsored schemes, EAPs etc..
This amount could also be raised as a loan.
If the proposal is bankable, State Government may also consider standing
guarantee on the merits of each case.
The Society can, if it is able to manage a large donation, also act as
trustee for trust fund.
The
Society may also enter into long-term agreement with tour operators for suitable
updating of facilities and allow them to use these facilities at concessional
rates for an agreed period.
The
Society would also need to be given autonomy to seek funding from international
donors, like GEF, concerned with biodiversity conservation through involvement
of local communities/ stakeholders.
The societies would be duly authorized to levy and collect fees for use of eco-treks and recycle the revenue so generated into the programme. In this respect it is proposed that the Society be allowed to fix its own fees according to its needs and the market acceptability.
7.2.2
Infrastructure/ Ownership Issues:
It has been proposed that, to begin with, the existing infrastructure of mainly
SFD would be made use of under the programme.
A question would arise about the ownership of these assets.
The FRHs have been primarily constructed for touring officers and would
be needed for the purpose in future too. Therefore,
a long-term workable arrangement has to be arrived at so that these assets could
be put to optimum use without compromising the primary functions for which these
were developed.
It
is, therefore, proposed that ownership of these assets would remain with the
organisations to which these belong. The
Society would, however, enter into MoU with these organisations for use,
upgradation and maintenance of these assets for an agreed period, under
supervision of officials of the concerned organisation.
Provisions for making these facilities available to touring officers (as
per their programme circulated well in advance) would be incorporated in the MoU.
The
portion of the trekking routes passing through the forests would continue to be
under the overall management of the Forest Department, but this function would
be delegated to the concerned Society under adequate supervision. Upkeep of
these routes, likely to bear increased traffic and consequential increased wear
& tear, would also be the responsibility of the Society.
The Society would also seek permission for putting up/ erecting
signposts, information boards and resting places from its own funds enroute the
identified tracks. It will be the
responsibility of the Society to maintain these facilities created.
Once
the MoU is signed with the Society, the officials of the concerned departments
would be responsible for making these assets/ facilities available to the
society for eco-tourism purposes.
7.2.3
Capacity Building:
Initial responsibility for capacity building would have to be shouldered by the
SFD. Both the officials and the
community representatives would need to be oriented before taking a plunge into
this programme. Agencies like
Wildlife Institute of India (WII), Centre for Environmental Education (CEE),
National Museum of Natural History, HP Gyan Vigyan Samiti, Forest Training
Schools of SFD have necessary wherewithal to organise special training
programmes for communities in eco-tourism.
The SFD would be responsible for organizing these training programmes
till the Society becomes adequately functional. Once the Society is set up and
its initial members get tuned to the idea of eco-tourism, training programmes
for the eco-track level societies and for service providers (cooks, guides etc.)
would be taken up. Local crafts
persons would also be trained to produce and exhibit their articles for the
eco-tourism purposes too.
7.2.4 Promotion/
Publicity: This shall
initially be the responsibility of the SFD, though the ultimate objective would
be that the individual societies undertake their own promotional activities.
Publicity would be started with attaching an advertisement in the
web-sites of HPSTDC. Society’ own
web-site would be developed gradually with linkages established with existing
web-sites on the subject.
Liaison
will be established with the HPSTDC and other local tour operators to guide the
tourists to the eco-tours. As a
promotional strategy, these agencies could be provided the use of these
facilities on concessional rates.
As
the resources build up, advertisements in national newspapers and in the
brochures of international tour operators would be inserted.
Society would also prepare and widely circulate its own brochure and
pamphlets. Appropriate literature and exhibition material for each
eco-track would be developed by the Society under guidance of local Forest
Officials.
7.2.5
Income Generation/ Sharing of
Benefits: Eco-tourism,
marketed and managed in a professional way, could turn out to be a good source
of income generation for local communities and the government.
The entire programme is based on the premise that even the communities
living in remote localities and having no real income generation opportunities
may benefit from the eco-tourism potential in their areas.
Whereas the major benefit to the local communities is envisaged by way of
their providing direct services such as hosts, guides, porters, cooks, etc. to
the tourists, the Societies would earn revenue by way of levying of fees and
providing of infrastructural facilities.
Rates
for direct services by local people would be fixed by the society and service
providers would be called to the job by turns so that in the zeal to get a
client, they may not enter into competitive wage rates.
It would also reassure the tourists of fair deal and any suspicion of
their being fleeced by the local people would get eliminated.
Revenue
generated by the Societies would be used for repaying the loans etc., meeting
establishment charges and for recycling into infrastructure upgradation and
maintenance. A fixed percentage of
the fees collected would be paid to the government as royalty for use of natural
resources, but only after a few years, when the Societies are established and
have become viable.
Exemptions:
Since these Eco-tourism societies would be functioning at the village level, and
since their objective is to benefit the population at grass root level, they
would be exempt from any registration with the Tourism Department and from the
payment of luxury tax etc..
8.
Points of Concern:
Eco-tourism,
if managed professionally and with conviction, is a recognised strategy to
improve the living standards of local communities along with conservation of
natural resources. However,
assumptions regarding possible adverse impacts of such tourism, if it slides
downs to the level of unorganised conventional tourism due to lack of
professional management, need to be kept in view.
Some
of such assumptions are as under:
‘natural
resource tourism may have negative impact on the resource base via demands
created upon firewood, environmental pollution and conflicts with resource needs
of local communities’.
‘there
may be more number of tourists interested in a particular eco-track than its
carrying capacity, causing added pressures on resource base and environment
quality’.
‘the
tourist influx may result in cultural pollution of the area’.
‘the
programme might be highjacked by the influential people even in remote areas and
the have-nots continue to remain deprived of benefits’.
Even as issues like ‘carrying capacity’ and ‘assessment of environmental impact’ could be taken up for research and regular monitoring through competent agencies, most of these assumptions raise points of serious concern. Definite strategies to address these assumptions need to be developed and put in place.
9.
Eco-trail Profile & Government Assets:
The
programme proposes to identify and develop eco-trails in all parts of the state
so that the benefits could be extended to the maximum number of people.
Before the programme is launched at the state level, some pilot eco-treks
shall be identified to work out and refine modalities of the programme.
The
exclusive staff of Forest Department in these units would continue to draw their
salaries from the SFD as heretofore but would be deployed with the concerned
society, and budgetary support to them for salaries frozen at current levels.
The government would also continue the budgetary support for other
charges such as maintenance, office expenses, rent rates and taxes etc. at
current levels. Societies would be
allowed to retain the revenues earned by them from their eco-tourism operations.
This arrangement would be reviewed after two years, by which time the
financial viability and sustainability of these units would become clearer.
10.
Linkages with other Policies/ Programmes of the State Government:
The
State Government has recently issued its ‘Tourism Policy –2000’ with
various objectives including the ones related to ‘economically, culturally and
ecologically sustainable tourism’ and generation of ‘employment
opportunities in rural, tribal and remote areas’.
This policy also recognises the importance of village and nature tourism
and has provision for incentives to village level tourism cooperatives and for
developing paying guesthouse facilities in the villages.
These provisions in the Tourism Policy would be taken advantage of while
designing proposals for eco-tourism development in the state.
Eco-treks
identified under this programme pass through some of the pristine forest areas
in the state. These eco-treks and
their surrounds would need to be maintained as such for continuation of their
ecological functions and to retain their appeal.
The Department of Town and Country Planning would, therefore, have to
keep a strict vigil over any unplanned development along these tracks.
A
SFD project on sustainable rural livelihoods is under finalization with
financial support from DFIDI. Eco-tourism concept, as proposed in this paper, would go a
long way in achieving the objectives of this project. Appropriate linkages with this project would be established
as the concept grows further.
11.
Initial Selection:
1.
Nature Park, Kufri
2.
Van Vihar, Potter’s Hill, Shimla
3.
Khajjiar
4.
Renuka
5.
Chansil Pass Eco-Trail
6.
Great Himalayan National Park