Kasturirangan Committee on Western Ghats: ESA, Conservation and Federalism

GS Paper III: Conservation, environmental pollution and degradation.

Context: The prolonged debate over implementation of the Kasturirangan Committee recommendations on the Western Ghats highlights the challenge of balancing ecological conservation, livelihoods, development and environmental federalism.

Western Ghats and Ecological Significance

• Ecological Spine: The Western Ghats form a major ecological system extending across six States and constitute a globally significant biodiversity hotspot.
• Environmental Pressures: Mining, construction and large infrastructure projects have increased ecological pressures on the region.
• Conservation Challenge: Effective protection requires balancing the ecological importance of the region with the livelihood and developmental needs of local communities.

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Gadgil and Kasturirangan Committees

• Madhav Gadgil Committee: The Western Ghats Ecology Expert Panel (WGEEP) submitted its report in 2011 and proposed a highly restrictive conservation framework covering the wider Western Ghats landscape.
• State Concerns: Several States viewed the recommendations as excessively restrictive because of their potential implications for development and economic activities.
• Kasturirangan Committee: The committee submitted its report in 2013, adopting a relatively more differentiated and development-compatible approach.
• Ecologically Sensitive Area (ESA): It recommended declaring approximately 37% of the Western Ghats region as ecologically sensitive.
• Permitted Activities: While activities such as major polluting industries, mining and large dams would face restrictions, activities such as normal agriculture and existing human settlements could continue subject to applicable regulations.

Karnataka’s Concerns

• Outdated Data: Karnataka has questioned the use of 2012 remote-sensing and satellite data, arguing that the classification of natural and human landscapes may not accurately reflect current ground realities.
• Revenue Village Approach: The recommendations raised concerns because if a specified proportion of a revenue village fell within the ESA, the entire village could potentially be included, affecting agricultural and residential areas.
• Livelihood Concerns: Political opposition in Karnataka has increasingly framed the issue around the potential impact of environmental restrictions on farmers, workers and local communities.
• Mining Interests: Critics of the implementation process have also highlighted the influence of economic and mining interests, particularly because mining activities would face restrictions under the ESA framework.

Ground-Truthing and Implementation

• Ground-Truthing: The Centre asked States to verify satellite-based classifications through physical verification on the ground, allowing discrepancies between remote-sensing data and actual land use to be identified.
• Implementation Delays: Prolonged disagreement between the Centre and States has created policy uncertainty regarding development planning and ecological protection.
• State-Specific Concerns: States have sought modifications to ESA boundaries based on ground realities, local livelihoods and administrative considerations.
• Kerala Example: Kerala has undertaken ground-level verification and sought reduction of the proposed ESA area based on its assessment of actual land use.

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Environmental Federalism

• National Benefit, Local Cost: Conservation of the Western Ghats generates ecosystem-wide and national benefits, including biodiversity protection, water security and climate resilience.
• Uneven Burden: Restrictions on industrial and infrastructure activities are primarily experienced by local States, communities and landholders.
• Centre-State Negotiations: States therefore seek greater flexibility in determining the extent and implementation of ESAs within their territories.
• Federal Coordination: The issue demonstrates the need for cooperative environmental federalism, where national ecological objectives are reconciled with legitimate State-level developmental concerns.

Key Challenges

• Conservation–Development Conflict: Strict conservation measures may generate resistance when local communities perceive them as threats to livelihoods and economic opportunities.
• Data Reliability: Environmental zoning based on outdated or insufficiently granular data can produce disputes over land classification.
• Misinformation: Misconceptions regarding displacement or loss of land rights can create fear and resistance among local communities.
• Implementation Uncertainty: Delayed notification and changing boundaries can create uncertainty for communities, businesses and governments.
• Fragmented Governance: Divergent positions among six States complicate the implementation of a landscape-level conservation framework.

Way Forward

• Scientific Remapping: Prepare updated, high-resolution scientific maps using contemporary satellite data and field verification.
• Participatory Ground-Truthing: Involve local communities, farmers, State governments and scientific institutions in ground-level verification.
• Livelihood Security: Ensure that conservation policies are accompanied by measures protecting farmers’ and local communities’ livelihoods.
• Counter Misinformation: Clearly communicate the legal and developmental implications of ESA notification and address false claims regarding displacement.
• Cooperative Federalism: Establish sustained Centre-State dialogue to reconcile ecological imperatives with legitimate developmental needs.
• Differentiated Conservation: Adopt location-specific restrictions based on ecological sensitivity, carrying capacity and existing land use, rather than relying solely on uniform classifications.

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Conclusion

The Western Ghats debate demonstrates that ecological conservation cannot be sustained without social legitimacy. A durable framework requires scientifically updated mapping, participatory ground-truthing, livelihood protection and cooperative environmental federalism, ensuring that conservation and development are addressed as interconnected policy objectives.

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