CHAPTER 3
MINISTRY OF ENVIRONMENT AND FORESTS

3.1    Zoological Survey of India

Survey and exploration work of ‘faunal’ resources in the selected areas was behind schedule for periods ranging from five to 13 years.

Equipment costing Rs 22.68 lakh procured for taxonomic studies was lying unutilised since April 1996 for want of trained manpower.

Slow progress in conducting status survey of endangered species.

Research results were not published expeditiously resulting in their non-dissemination.

Non-commissioning of Marine Aquarium Research Centre at Digha for about a decade adversely affected marine research and resulted in idling of equipment worth Rs 49.25 lakh.

Ineffective monitoring and evaluation resulted in delay in achievement of targets fixed by MoEF in 1987.

Zoological Survey of India (ZSI) was established in 1916 to promote survey, exploration and research leading to advancement in knowledge of various aspects of the animal life of India. Ministry of Environment and Forests (MoEF), the administrative Ministry of ZSI redefined the objectives of ZSI in December 1987.

The primary objectives of ZSI are:

1. Exploration and survey of ‘faunal’ resources;
2. Taxonomic studies;
3. Status survey of endangered species;
4. Publication of results through departmental journals; publication of fauna of India;

The secondary objectives of ZSI included maintenance and development of national zoological collection and central referral, information, advisory and library services, maintenance of museums at headquarters and regional stations and environmental impact studies wherever specially asked for by the MoEF.

ZSI is headed by a Director. Besides its headquarters in Kolkata with 18 divisions, there are 16 regional field stations. Monitoring of day-to-day activities of ZSI is conducted through two internal committees viz., half yearly Monitoring Committee and Screening Committee. In addition MoEF, in January 1997 constituted Programme Advisory Committee (PAC) for proper and comprehensive study of various aspects of ZSI. An organisational chart is at Annex-I.

The present audit review seeks to examine the performance of ZSI in relation to exploration and survey of ‘faunal’ resources, taxonomic studies, status survey of endangered species, publication and some other activities of ZSI from 1994-95 to 2000-2001.

Against the total provision of 17.73 crore and Rs 43.48 crore under Plan and Non Plan during 1994-2000, ZSI spent Rs 17.82 crore and Rs 44.10 crore respectively. MoEF allocated Rs 5.78 crore and Rs 10.15 crore for the year 2000-2001 under Plan and Non Plan heads as detailed below :

Survey of ‘faunal’ resources of an area involves inventorisation of specimens of that area. The mode of survey is by conducting tours to the selected area, collection of specimens and recording and inventorisation of the specimens collected. ZSI had already surveyed nearly one third of the country by December 1987. MoEF had directed ZSI to complete faunistic survey of the remaining two-third geographical area by 2000. The areas to be surveyed were categorised under first and second priority. Under the first priority, 12 areas were to be surveyed by 1993, while under the second priority 17 areas were to be surveyed by 1996.

The status of survey as of June 2001 under first priority areas was as follows :

Surveys of nine first priority areas were incomplete

No tour was undertaken for HP, UP and Gujarat

Surveys of nine first priority areas were not completed till date. MoEF had directed ZSI in 1987 to conduct the surveys of 11 priority areas through 10 task forces drawn from the regional field stations and headquarters. These task forces were to be strengthened through re-deployment and recruitment. Surveys conducted during 1994-2001 by the task forces were checked in audit. Earlier records of tours/ surveys undertaken were not available at ZSI. The annual action plan of ZSI shows that ZSI had planned to undertake 120 tours covering six areas over the period 1994-2001, 112 of which were finally undertaken. Number of tours planned during a year declined from 37 planned in 1994-95 to only 7 in 2000-01, though the men-in-position had remained almost the same. No tour was planned or undertaken for survey of three areas, Himachal Pradesh, Uttar Pradesh and Gujarat. MoEF in reply (December 2000) stated that the survey of these three regions was an on-going project. The reply of the Ministry is not tenable in view of the fact that no tour was planned or undertaken which was essential for completion of survey.

Of the nine areas where survey remained to be completed as on June 2001, functioning of task force in four areas, Uttar Pradesh, Andaman & Nicobar Islands, Ladakh and Jammu & Kashmir were test checked in audit for the period 1994-2001. 22 tours were planned in these areas as per annual action plan of which 19 were undertaken.

Despite directives of the Ministry adequate efforts were not made for re-deployment and recruitment of staff

Test audit revealed that despite directives of the Ministry, sufficient efforts for re-deployment and recruitment of staff were not made. MoEF in 1987 had directed ZSI to revise the strength of existing task force in Uttar Pradesh from nine to 13. The additional manpower was to be arranged through recruitment and redeployment. ZSI did not redeploy the staff after 1987. Only one non-technical staff member was recruited. The ‘faunal’ resources of Jammu & Kashmir was to be surveyed by 1993 by strengthening the task force of High Altitude Zoology Field Station (HAZFS), Solan. MoEF directed ZSI to revise the strength of the task force from five to nine by recruitment. Though four posts were created only two were filled.

The progress of the ‘faunal’ survey of an area was not evaluated at any stage

To assess the efficacy of the tours undertaken for the surveys, tour reports, half-yearly evaluation report of ZSI and minutes of PAC meetings were studied. It was seen that the efficacy of the tours for survey has not been commented on at any stage. The progress of the ‘faunal’ survey of an area had also not been evaluated at any stage, which is indicative of lack of effective monitoring on part of ZSI as well as the Ministry.

MoEF had also identified 17 areas for survey under second priority and had desired completion of the work between 1988 and 1996. The status of survey as of June 2001 under second priority areas was as follows:

ZSI did not undertake any tour in respect of nine areas out of 12

ZSI did not complete survey of 12 out of 17 areas till June 2001, despite time overrun ranging from five to 13 years. ZSI did not maintain any records showing surveys undertaken over the period 1987-1993. Over the period 1994-2001, ZSI planned 36 tours and undertook 26 tours for survey of second priority areas. Number of tours planned during a year declined from eight tours planned in 1994-95 to only one tour in 2000-01, though there was no decline in manpower. ZSI did not undertake any tour during 1994-2000 in respect of nine areas out of 12.

Test check of three areas namely, Dal and Wular (Jammu and Kashmir), Govind Sagar (Punjab), and Loktak (Manipur) was taken up in audit.

Survey of Loktak, Manipur was to be completed by 1996. Scrutiny revealed that ZSI undertook only one survey in 1996-97 out of five surveys, which were planned during 1994-2001. MoEF stated in December 2000 that the survey and inventorisation was partially completed by the Scientist who was later posted to Hyderabad. However, the work remained incomplete as of June 2001.

MoEF directed ZSI in 1987 to complete survey of Dal and Wular (Jammu and Kashmir) by 1994 by strengthening the joint task force from Freshwater Biological Station (FBS), Hyderabad and High Altitude Zoology Field Station, Solan. But the survey of the area was not initiated as yet. MoEF stated in December 2000 that the survey could not be initiated due to lack of scientific manpower in FBS, Hyderabad. Thus, due to failure to associate scientific staff, the surveys of Dal and Wular (Jammu and Kashmir) remained incomplete as of June 2001.

Survey in respect of Govind Sagar (Punjab) was to be completed by 1995 by strengthening the joint task force from FBS, Hyderabad and Northern Regional Station, Dehradun as per directives of MoEF of 1987. But the survey work was not initiated as yet. MoEF stated in December 2000 that the survey was not initiated due to lack of manpower at FBS, Hyderabad. Thus, survey of Govind Sagar (Punjab) remained incomplete as of June 2001.

Taxonomic studies are intended to identify and classify organisms and place them in appropriate taxons.

Taxonomic studies are conducted following collection of specimens during survey. MoEF had directed in 1987 that the taxonomic study of the specimens collected were to be completed within an year’s time following the collection. Thus, completion of taxonomic studies of first priority areas was scheduled to be completed by 1994 and that of second priority areas by 1997. Since the surveys of nine first priority areas and 12 second priority areas were not completed as of June 2001, taxonomic studies too were not complete. Audit found that ZSI did not maintain any records showing year-wise number of specimens collected and taxonomically identified. Thus, taxonomic studies could not be completed by ZSI.

Non-utilisation of equipment since April 1996 for want of trained manpower

ZSI procured one Scanning Electron Microscope at a cost of Rs 22.68 lakh in August 1989 for enhancing its functional capabilities in ascertaining the taxonomic identity of animal species. The equipment was installed in August 1990 and was being used up to March 1996. However, it remained unutilised since April 1996 for want of trained manpower. MoEF stated in December 2000 that efforts were being made to train scientists of ZSI in different institutions to use the microscope. Thus, failure of ZSI to provide trained manpower resulted in under utilisation of the equipment costing Rs 22.68 lakh.

The objective of status survey of endangered species is to determine the range of distribution, range of movement, population status, habitat and ecological requirement along with threat factors etc. of endangered species. MoEF, in 1987, had directed ZSI to conduct status survey of 77 species of mammals, 46 species of birds, 15 species of reptiles, 3 species of amphibians and large number of invertebrates by 1995. ZSI did not prepare any plan to achieve the target. The status survey was to be completed on priority basis by deploying scientists from Regional Stations and the Headquarters. However, ZSI undertook status survey of only 11 species (mammals). Non-completion of status surveys of remaining species within the target date was attributed to the retirement of several scientists/specialists. The reply has to be viewed in the light of the fact that no proper action was taken by ZSI to fill the posts arising due to retirement.

Though MoEF stated in December 2000 that ZSI had undertaken status survey of 11 species, it was seen from the records of ZSI that it had completed status survey of only eight endangered species. Of eight completed surveys, ZSI published status report of only three endangered species as of April 2001.

ZSI publishes Fauna of India and Fauna of States which provides the identification keys and distributional ranges of the species and genera belonging to a particular group as well as of species of economic importance. Publication of other priced journals interalia provides guidelines for the management of species as well as conservation areas. This literature also serves as the foundation of different Environmental Impact Assessment studies and generates base line data for applied research particularly in the field of wildlife management, medicine, pest management and fisheries.

MoEF in December 1987 had targeted publication of at least 50 volumes of Fauna of India during 1991-2000. It was, however, observed that only nine volumes on Fauna of India were published by ZSI during 1991-2001. Poor progress was due to delay in submission of volumes on Fauna of India by the respective groups of experts. Thus, 41 volumes of Fauna of India were yet to be published even after expiry of one year after the target date of 2000.

Publication of Fauna of States provides complete information on the ‘faunal’ wealth of the country. MoEF in December 1987 had set a target for compilation of data and publishing the fauna of all the 20 States by 2000. However, ZSI had published only six state Fauna series, namely Orissa, Lakshadweep, West Bengal, Meghalaya, Andhra Pradesh and Delhi. Test check of state fauna projects revealed that they were behind schedule for periods ranging between two and six years.

ZSI publishes the results of survey and studies in its priced journals. The journals are (i) Records of ZSI (Quarterly), (ii) Memoirs of ZSI (Occasional), (iii) Bibliography of Indian Zoology (Annual) and (iv) Annual Reports of the ZSI. It was observed that during 1994-95 to 2000-2001, ZSI published 4800 copies of Records of ZSI worth Rs 14.95 lakh. Of these, 2265 copies worth Rs 6.11 lakh were lying unsold as of April 2001. Similarly, out of 1400 copies on Memoirs of ZSI worth Rs 2.96 lakh which were published during 1994-2001, 421 copies worth Rs 0.89 lakh were lying unsold as of April 2001. The Bibliography of Indian Zoology for the years 1991,1992 and 1993 was belatedly published in April 1999. The Annual Report for the year 1992-93 was published in May 1995. Besides, the Bibliography of Indian Zoology was not published after April 1999 and the Annual Report was not published after 1995.

The setting up of Marine Aquarium and Research Centre (MARC), Digha was approved by the Planning Commission during the Sixth Five Year Plan period with the objective of exhibiting live marine fauna in an aquarium for education and recreational purposes as well as to conduct research on selected marine forms in captivity. The centre was planned to be operational by 1990.

Mention was made in paragraph 3.2.10 of Report of the Comptroller and Auditor General of India (Scientific Departments) for the year ended March 1991 regarding delay in commissioning of MARC at Digha despite incurring an expenditure of Rs 233.08 lakh up to June 1990. MoEF had stated in its Action Taken Notes in March 1993 that the aquarium would be commissioned in the latter half of 1993. However, the centre could not be commissioned as of June 2001. Civil construction in regard to the aquarium was completed by Central Public Works Division (CPWD) in 1990-91. During trial run in November 1991, CPWD found that the pumps meant for water circulation system were defective and intimated ZSI in April 1992. Despite being aware of the defects in pumps of the intake well and also in pumps installed in the aquarium, ZSI awarded a work order to a private firm in August 1992 at a cost of Rs 48.95 lakh for the supply of live animals and for furnishing the aquarium. In November 1992, the firm requested ZSI to rectify the defects in the system. ZSI, instead of taking up the matter with CPWD for rectifying the defects asked the firm in March 1994 to rectify the defects in the system as an additional work outside scope of contract. The cost of additional work was to be assessed by CPWD. The firm fitted the pumps but did not connect them for water circulation. The firm requested ZSI in July 1995 that the pre-assessment of works already done by the firm, along with the work of connection to be done should be worked out by ZSI through CPWD within August 1995. ZSI, without conducting any pre-assessment cancelled the contract in December 1995 without assigning any reasons. ZSI had paid an amount of Rs 34.37 lakh to the firm towards part payment for the work.

Project visualised in Sixth Five Year Plan had not been commissioned as yet

ZSI did not pursue the matter with CPWD for about four years and approached them only in November 1999 to rectify the defects of the water circulation system and furnish the aquarium. Thus, the project visualised in the Sixth Five Year Plan (1980-85) and scheduled for commissioning in 1990 had not been commissioned as yet.

MoEF stated in December 2000 that ZSI could not commission the Centre as the entire matter was subjudice throughout the period from 1995 till date. The reply of MoEF was not tenable since the balance works could have been done by inviting fresh tender as suggested by the Ministry of Law, Justice and Company Affairs after cancellation of the contract. The reply of MoEF has also to be viewed in light of its own observation made in March 2000 that ZSI had not properly pursued the case.

As a result of non-commissioning of MARC, Digha, research studies on commercially threatened species like Seahorse, Seacucumbers, Sacred Chanck, Horseshoe Crab, Ornamental Coral Reef, associated species like Turbo Trochus, Fishes etc. which could be reared in the laboratory and ranched into the wild to safeguard and ensure future breeding of the species in the wild, could not be undertaken. Research in captivity could not be undertaken to prevent possible extinction of commercially threatened species like Sea Horse. As regards research studies on commercially threatened species, MoEF stated in December 2000 that the species which were pointed out by audit were not normally found in the Digha coast. The contention of MoEF was to be viewed in light of its comment that the said species were only to be reared in the MARC, Digha. ZSI did not offer any comments on this issue. As regards research in captivity, MoEF accepted the facts and stated in December 2000 that it would be taken up as soon as the water circulation system was made functional by CPWD.

Two costly equipment worth Rs 49.25 lakh procured at the MARC, Digha remained idle for long periods as detailed below :

One Amino Acid Analyser procured by ZSI in 1992 at a total cost of Rs 36.25 lakh for ascertaining the amino acid structure, its pattern and chemical configuration in the biological tissue comprising of protein/peptides for marine species, had not been commissioned till December 2000. MoEF stated in December 2000 that due to closure of the foreign firm immediately after its import the instrument could not be commissioned. MoEF also stated that the equipment would be made operational by locating a local suitable company. ZSI stated in April 2001 that many local companies had been approached for repair and maintenance of the machine. The reply of ZSI disclosed the fact that the instrument had not been commissioned (April 2001).

Equipment procured in 1994 remained unutilised due to lack of expertise

One High Performance Liquid Chromatography (HPLC) system procured by ZSI in February 1994 at a cost of Rs 12.96 lakh for monitoring of marine pollution and biological contents study, was not utilised due to lack of expertise. MoEF stated in December 2000 that HPLC was being used at MARC, Digha. However, ZSI itself had stated in May 2000 that the equipment was not being utilised.

There was inadequate monitoring of schemes in ZSI

ZSI has three committees to monitor and evaluate its research activities. While Screening Committee (SC) and Half Yearly Monitoring Committee (HYMC) consists of members from ZSI, Programme Advisory Committee (PAC) consists of the members from MoEF, ZSI and experts from other organisations. Though SC met annually and HYMC met twice a year as per prescribed frequency during 1994-2000, PAC met only on three occasions. No meeting was conducted up to July 2000 as against two meetings in a year as prescribed by MoEF in January 1997.

Though the discussion of PAC was minuted, the discussion of SC and HYMC were not minuted during 1994-2001. In the absence of recorded minutes of these two committees, follow up action on important suggestions/ recommendations of the members could not be verified. Though PAC was constituted by MoEF to conduct comprehensive study of various aspects of ZSI, its minutes did not establish that various aspects of ZSI had in fact been comprehensively studied by the said committee. Scrutiny of the minutes of PAC revealed that the projects were not evaluated with reference to target and shortfalls. The reasons for delay in completion of the project and remedial measures proposed thereon were also not recorded. In the absence of such recorded details, Audit could not evaluate the effectiveness of monitoring mechanism in ZSI.

ZSI failed to fulfil its primary objectives of exploration and survey of ‘faunal’ resources, taxonomic studies, status survey of endangered species, publication of results, adversely affecting data required for eco-conservation and biodiversity programmes of the government.

Annex-I
Organisational chart