14. Surveys of soil erosion and land-use capability should be undertaken in the catchment areas and etailed plans for soil conservation should be drawn up on the basis of these surveys. Critical areas should be demarcated and a programme of preservation of forests and other natural vegetation by regualtion of grazing and felling, protection from fires, control over cultivation especially shifting cultivation, should be undertaken. Afforestation and other erosion control measures like gully plugging, construction of bunds and terraces should be taken up in suitable areas. Cultivators should be taught conservation practices and should be given technical and financial assistance for adopting them. The cultivators of each sub- catchment should be encouraged to form themselves into soil conservation associations and formulate a conservation programme with the sub-catchment as the unit. Approved conservation Programmes of such associations should receive preference in respect of technical and financial assistance from the Government.

15. The adoption of conservation measures will generally involve curtailment of the customary rights of certain classes of persons like graziers and shifting cultivators. Such restrictions are, however, absolutely necessary in the interest of the entire population of the river valleys and should be strictly enforced. Suitable arrangements should, however, be made for resettling and providing alternative means of employment for the populations whose privileges or rights may have been restricted.

SOIL CONSERVATION 303

16. Most of the large rivers of the country pass through the territories of two or mor States. In many cases, soil conservation measures are necessary in one State in which the catchment area of the river is located while areas receiving irrigation or flood control benefits are located in other States. Soil conservation measures in such cases can be effective only With the cooperative effort of all the States concerned, and if suitable arrangements are made for financial contribution towards the cost of these measures by States which would receive benefits from the projects. One of the principal functions of the Central Organisation which we are proposing would be to secure agreement among the various States concerned, and to see that a coordinated programme of soil conservation is adopted for every river valley-project.

THE PROBLEM OF THE RAJSTHAN DESERT

17. Desert and semi-desert conditions prevail over a large area in western India-in Rajasthan and the adjoining areas of Punjab, Pepsu, U. P., Saurashtra and Kutch. The Planning Commission in its Draft Outline Report drew attention to the reported advance of the desert and encroachment of sand on fertile lands. The Government of India recently appointed an ad hoc Committee of experts to investigate this problem. The Committee has recommended a comprehensive programme of action which includes creation of a vegetation belt-five miles wide-along with the western border of Rajasthan ; afforestation measures so as to increase the proportion of forest area in Rajasthan ; improvement of land-use practices, especially the creation of shelter belts of trees by cultivators, and establishment of a research station to investigate the problems of the desert. The report of the Committee has been considered by the Central Government. As a first step, a Desert Research Station is being set up at jodhpur and a pilot scheme for the creation of vegetation belts and the improvement of land use is being taken up. Research on soils, land-use and silvicultural practices would be undertaken at this station. The scope of research is proposed to be extended later to include detailed hydrological, meteorological, geological and geophysical, investigations.The station would serve also as a centre for the demonstration of improved land-use techniques and the distribution of seeds and- other supplies.

18. As a number of States are affected by the advance of the desert, and as successful tackling of the problem would depend in large measure upon coordinated action by the various States concerned, the need for inter-State cooperation in this sphere cannot be over- emphasized. We recommend that a coordinated programme of action, indicating clearly measures to be taken I in each State should be jointly worked out by the various States concerned, in consultation with representatives of the Central Organisation.

ORGANISATION

19. For carrying out the programmes outlined above and generally for formulation and implementation of suitable policies in the fields of land utilisation and soil conservation, we recommend the constitution of (a) a Central Land Utilisation and Soil Conservation Organisation at the Centre, and (b) a Land Utilisation and Soil Conservation Board in every State.

304 THE FIRST FIVE YEAR PLAN

20. The Central Land Utilisation and Soil Conservation Organisation will have two parts :

(a) A Board in the Ministry of Agriculture which may consist of the following :-

                      Secretary to the Ministry          :   Chairman.
                      Inspector-General of Forests       :   Member.
                      Member (Irrigation), Central Water and Power
                         Commission.                     :   Member.
        
                                                 

The Board should have a full time Member-Secretary who should be a senior officer with experience of agriculture or forestry work.

(b) A council composed of representatives from the various States. This Council should meet once or twice each year to frame general policies.

The Board should have an adequate technical staff for carrying out the various functions of the Organisation which would be as follows :-

(i) Assessment of the soil erosion problem in the country on the basis of the reconnaissance survey which would be conducted.

(ii) Framing a common policy for the control of erosion and for soil conservation in the country. The Board will scrutinize and review the States' plans for improvement of land-use and soil conservation. Officers of the Board may be loaned to State governments which do not have the necessary staff of their own for assessment of the erosion problem, preparation of soil conservation plans, and, if necessary, also for their execution.

(iii) Helping the States Governments in drafting suitable legislation for soil conservation purposes.

(iv) Bringing together State Governments with a view to evolving agreed programmes of action on problems like soil conservation in river valley projects areas and checking the advance of the Rajasthan Desert where inter-state cooperation is necessary.

(v) Research and demonstration-The soil Conservation Research Branch at the Forest Research Institute, Dehra Dun and the Desert Research Station at jodhpur will be under the charge of the Organisation. The other soil conservation and demonstration centres will be managed jointly by the Central Organisation and the Board of the State in which they are located. The Organisation may aid suitable research programmes at other institutions in India. It should also evaluate and publicise research on soil conservation, and secure adoption of results of such research in soil conservation programmes.

(vi) Survey-The proposed Soil and Land Utilisation Survey will form part of the Organisation.

(vii) Publicity and Training-The Organisation will have suitable programmes for publicity and for the training of personnel for soil conservation work.

SOIL CONSERVATION 305

21. A State Land Utilisation and Soil Conservation Board should be created in the Department of Agriculture or Forest of every State.The composition of the Board may be as follows : -

        
                  Minister-in-charge of Agriculture or Forestry  .   Chairman.
                  Secretary, Development Department              .   Member.
                  Chief Conservator of Forests                   .   Member.
                  Chief Engineer, Irrigation                     .   Member.
                  Director of Agriculture                        .   Member.
                  Head of the Revenue Department in the State    .   Member.
        
                                          

The Board should have a full time Member-Secretary who should be a senior officer with experience of agriculture or forest management work,

Other members may be appointed as necessary.

The Board should have adequate technical staff as Well as field staff for the execution of its various programmes. The Member- Secretary of the Board will be the Director of such programmes and should be given a suitable status.

The functions of the Board will be :

(i) Assessment of the soil erosion problem in the State. For this purpose a reconnaissance soil erosion survey should be carried out.

(ii) Preparation of plans for control of erosion and soil conservation in the State.

(iii) Drawing up suitable legislation for the execution of improvement, of land use and soil conservation programmes.

(iv) Execution of plans, e.g., construction of bunds, terraces and other works ; demonstration of soil conservation practices ; aid to cultivators for execution of approved soil conservation programmes, and promoting formation of soil conservation associations. Those of the measures which lie in the sphere of action of other Departments should be undertaken through the regular agencies of the Department concerned. Thus. the necessary restrictions on grazing, felling etc. should be enforced by the Forest Department. The presence of representatives of the various Departments concerned on the Board will ensure the co-operation of these Departments.

(v) Framing suitable programmes for demonstration and research, publicity and training of personnel.

(vi) Supervision and control of Soil Conservation Associations.