Margins to mainstream: Reframing tribal inclusion

Since independence, India’s development and growth story has taken many forms. It is remarkable to witness its success in the economic and social spheres. Yet, amidst this progress, there are sections of society that remain distant from the ladder of development. One such group is the Particularly Vulnerable Tribal Groups (PVTGs), who continue to be excluded from the fruits of growth and modernisation. Bringing them into the mainstream remains a significant challenge for the government.

The Fifth Schedule of the Indian Constitution deals extensively with Scheduled Areas and Tribes. A major milestone in identifying PVTGs came in 1960-61 when the Dhebar Committee played a crucial role in formally classifying these communities (then referred to as Primitive Tribal Groups). According to the 2011 Census, Scheduled Tribes constitute 8.6% of India’s population. Within this, PVTGs account for just 0.6% – a small fraction, yet critically important. Among Scheduled Tribes, communities are at varying stages of social, economic, and educational development. While some have adopted modern lifestyles, others still live at a pre-agricultural stage, relying on hunting and gathering for survival. These groups have extremely low literacy rates, stagnant or declining populations, and subsistence-level economies. These are the PVTGs.

There are 75 officially recognised PVTGs across various states in India. Most reside in ecologically fragile and inaccessible regions such as forests, hills, and remote rural areas. These settlements often make it difficult for government welfare schemes to reach them. Their livelihoods depend primarily on subsistence agriculture, forests, and traditional occupations.

Karnataka accounts for 4.07% of India’s total Scheduled Tribe population and is home to 50 tribal communities. Among these, two communities – Jenu Kuruba and Koraga – are recognised as PVTGs. The Jenu Kuruba population stands at 36,076, primarily residing in Mysuru, Kodagu, and Chamarajanagar districts. The Koraga tribe, primarily residing in coastal Karnataka – including Dakshina Kannada, Udupi, Kodagu, Shivamogga, and Uttara Kannada – has experienced a significant population decline over the past decades. Their numbers dropped from approximately 16,322 in 1991 to 16,071 in 2001, and further declined to 14,794 by 2011. According to the Karnataka Tribal Human Development Report 2022, alarming health issues such as heart disease and cancer-like conditions have prompted genetic research initiatives. Chronic malnutrition, widespread anaemia, inadequate infrastructure, and social isolation exacerbate their socio-economic vulnerabilities. Even UNESCO has raised serious concerns, calling
for urgent and targeted interventions to address the declining conditions of this PVTG.

One of the most significant legislative measures for tribal welfare has been the Forest Rights Act (FRA), 2006, which aims to provide legal recognition of tribal rights over forest land and resources. While the Act is a landmark in upholding tribal dignity and livelihood security, accessing its benefits remains a challenge. According to the Ministry of Tribal Affairs, as of July 31, 2024, a total of 2,94,489 Scheduled Tribe individuals and communities in Karnataka had registered claims under the FRA. However, only 16,326 titles were granted. This significant gap between legislation and implementation underscores the grim reality – despite the presence of a powerful law, systemic hurdles persist in delivering justice to tribal populations.

A recent incident underscores this disconnect. There was an altercation between Forest Department officials and police with Jenu Kuruba tribal families at their ancestral village Karadikallu Atturkolli, located within the Nagarahole Tiger Reserve. The tribal community asserted their status as original inhabitants with the right to remain on the land. However, the Sub-Division Level Committee (SDLC) established under the FRA rejected the claims of 52 families, citing the absence of official records to prove the village’s existence. This case reflects the ongoing tension between official documentation and the lived realities of India’s tribal communities, often leading to the denial of long-standing traditional rights.

Need for integrative approach

A major reason for the limited effectiveness of tribal development programmes is the bureaucratic nature of their implementation, which often overlooks the involvement of tribal communities in decision-making. Tribal development requires an approach fundamentally different from existing models. Jawaharlal Nehru, India’s first Prime Minister, proposed such a vision in his work The Discovery of India, and later formalised it through the Panchsheel Principles for Tribal Development. His five guiding principles were: (i) People should develop a long line of their own genius and nothing should be imposed on them. Rather we should try to encourage in every way their own traditional art and culture. (ii) Tribal rights in land and forest should be respected. (iii) We should try to train and build up a team of their own people to do work of administration and development. Some technical personnel from outside will be needed in the beginning. But we should avoid introducing too many outsiders into tribal territory. (iv) We should not over-administer these areas or overwhelm them with a multiplicity of schemes. We should rather work through their own social and cultural institutions. (v) We should judge the result not by the statistics of the amount of money spent but by the quality of human character that is evolved. This humane and integrative approach is particularly relevant for PVTGs, who still live in isolation. Integration should be a gradual and respectful process – not one imposed by force or neglecting their culture and customs.

Efforts such as the PM-JANMAN (Janjati Adivasi Nyaya Maha Abhiyan) are aligned with a vision to improve the socio-economic conditions of PVTGs. The programme focuses on skill development, vocational training, education, healthcare, and infrastructure – especially in PVTG villages and habitations. Its objectives include providing pucca houses, clean drinking water, electricity, mobile and road connectivity, anganwadi centres, and access to entitlements. By enhancing human capital through better education and health services, the initiative aims to foster inclusive development.

(The writers are assistant professors at the Department of Economics, Christ Deemed to be University, Bengaluru)