May 2008

Vol 52

Chief Editor : Anurag Misra Joint Director (Prod) : N.C. Mazumder

Cover Design : Chirag Sharma
In-charge : Manogyan R. Pal
E-mail (Editorial) : [email protected]
: [email protected]
(Circulation) : pdjucir_ [email protected]
Website : www.publicationsdivision.nic.in

Let noble thoughts come to us from every side

Rig Veda

CONTENTS

INTERVIEW And Child Labour on. Myth and Reality..............................................................32

Say a firm “No”.......................................................................5 Subhash Sharma
Devendra Mishra
A Moral Conundrum..........................................................8
J&K Window ......................................................................37
Shireen Miller
do you know ? what is polio?.................................41
No More Tools in Tiny Hands.......................................13
Kailash Satyarthi in the news ........................................................................43

1857 Azizun - The Enigmatic Courtesan

Problems and Solutions................................................18
of Cawnpore ........................................................................46
Meghnad Desai
Tripurari Sharma

Best Practices Children as change makers....22 Rural Development..........................................................49

Kiran Sharma Ishita G Tripathy
K K Tripathy
Change of Societal Attitude Imperative..............28
Dhurjati Mukherjee book review . .......................................................................52

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Disclaimer :
l The views expressed in various articles are those of the authors’ and not necessarily of the government.
l The readers are requested to verify the claims made in the advertisements regarding career guidance books/institutions. Yojana does not own responsibility
regarding the contents of the advertisements.

YOJANA May 2008 1

2 YOJANA May 2008
 About the Issue
Saving Childhood : Not by Laws Alone

T he Union Government banned in 2006 the employment of children below

14 years in restaurants, hotels, teastalls, eateries and in domestic help.
According to child rights activists, there has been little improvement in the
situation. Child labour is still rampant across the country. According to the
2001 census, there are over 61,000 children working in hotels, restaurants, tea-
stalls and road side eateries. This figure is just a small fraction of over 12.6
million child labourers in India, the highest in the world.

Though law is a necessary step, it does not solve the problem. The ban does not work. Is it
realistic? Will it be successful? Will the parents cooperate? Will the children give up their jobs so
easily if they are earning some livelihood? When the US banned carpet exports in 1990s, Nepalese
children turned to prostitution. When Bangladeshi garment industry suffered, children turned to
stone-crushing and similar hazardous work. In almost every case, children are forced into labour
either by economic or social compulsions or due to absence of choices and opportunities. The
parents of working children are either unemployed or do not get work for even 50-60 days in a
year.

The policy makers must be aware of harsh realities of society. If children are completely
deprived of their employment and made to study in a school. They might study upto matriculation.
But what thereafter? Will they be assured of any job. In our country, it is not easy to get a job.
Instead, if children are learning a craft, they should be encouraged. At the same time appropriate
provision must be made for their education. They can be made to learn while they earn. They
must be given enough time to play. It is society’s responsibility to provide all facilities to our
children for their moral, emotional and physical development. Therefore, we have to look at it
from a holistic angle.

YOJANA May 2008 3

4 YOJANA May 2008
child labour interview

“And Child Labour on”.

Say a firm “No”

M
agsaysay Award NCPCR has a role in creating this is not just a coincidence. If it is
winner and public awareness on the issue of so obvious then why is it that none
Chairperson, violation of children’s right to of the documents on Education
N a t i o n a l food; receive complaints regarding Policy make no more than a passing
Commission malnourishment of children and reference to child labour?
for Protection of Child Rights press the state governments to act The most important reason
(NCPCR) Shantha Sinha feels no on them; hold public hearings on is that we don’t think we can
serious effort has been made to the issue and issue directives to the eliminate child labour. That is a
make children go to school. To State to take quick action; support problem to be solved another day
protect children’s rights, issues of and monitor the Supreme Courts in another realm. People are poor
nutrition and education should form directives and they need the income from their
the core of any government policy. to the states child’s labour. To eliminate child
In an exclusive interview to Anurag in ensuring labour you must eliminate poverty.
Misra, Chief Editor (Yojana), she that there is Otherwise people will starve. This
speaks about her concerns and a universal is the poverty argument. It is very
priorities of NCPCR. coverage of convincing.
India is having the largest all children
under six In every village there are a
number of malnourished number of poor parents sending
children, bypassing even Sub- years of age
through the their children to school while their
Saharan Africa. What will be better off counterparts are sending
the strategy/advocacy of the ICDS and
recommend adequate infrastructure them to work. How does one explain
NCPCR on this? that? Actually there is no ‘poverty
and facilities such as two anganwadi
SS It is unacceptable that India’s workers, decentralization of line’ below which all parents are
track record on malnourishment delivery of services, provision compelled to send their children to
of its children is so appalling. It of hot cooked meal and so on; , school. This is a pure myth. Parents’
is in the process of responding to NCPCR also proposes to conduct basic desire to ensure a better
the most vulnerable and in their public hearings on the mid day future for their children reduces
weakest moments viz. children who meal for all school going children the poverty threshold at which
are malnourished that democracy is up to primary schools; and work they MUST send their children to
tested. Continuous failure on this towards a legal framework that work to much lower levels than we
account has to be perceived as a imagine. It is only this that explains
assures that children have their
threat to the nation’s progress. This why many poor parents (though not
right to food. as many as we would want) actually
can be combated only through public
pressure and outrage on the failure You are quite vocal against send children to school today. To
of the system to keep children out child labour and in favour of understand the problem of child
of hunger and malnourishment. The sending each and every child labour and education therefore
government too must strengthen the to school. How would you like we must actually understand why
structures and processes that are to to handle this? children are in schools instead of
provide services to children’s access SS India has the largest number of
why they are not.
to food such as the ICDS and the mid children out of school. It also has Unfortunately because we
day meal program and is to be held the largest number of children in the believe in the Poverty Argument
accountable for malnourishment. work force. Most people agree that we also think every child who is

YOJANA May 2008 5

working is doing so because of group should be the first step It is contended that children
poverty. Actually there is very towards generating a public debate are employed because they need
little correlation between the two on the issue of total abolition of the income and that their quality
and although there are plenty of child labour in all its forms in of life as a domestic child labor
examples to show, no one wants to the country. It will hold state and is far superior to the child being
accept it. regional consultations to build a with her own family submerged
Then why are so many children mood in support of children’s right in poverty and hunger. This is far
out of school and working? We to education and against child from true. Children are employed
just haven’t tried to understand the labour. as domestic child labor because
basic causes. The NCPCR is also responding they are a source of cheap labor
to specific complaints of child work and can be forced to work for
l No one has bothered to tell the long hours.
poor parents that the schools labour as in the case of hundreds
are for them and that the entire and thousands of children employed As law abiding citizens the
government machinery will in production of hybrid cotton seeds middle classes must set an example
support them in their endeavour in Rajasthan, Gujarat, and Andhra for all other employers of children
to send their child to school as if Pradesh and so on. It is holding and replace child labor with adult
they mean it. No one has even discussions with the concerned labor.
told them that it is right for them states to prevent child labour. It What will be the role of NCPCR
to think it is wrong to send their is also examining the practices on this issue?
child to work? of some of the States to identify,
rescue and rehabilitate child labor SS N C P C R t a k e s s p e c i f i c
l For generations the poor have in each State and arrive at a protocol complaints of violation of children’s
been told that it is their lot to and institutional mechanism for the rights while at work and press the
labour. Children with education same. concerned departments to enforce
will become useless for labour the law for rescue and release of
as well as for any other work. On the education front the child labour. It conducts public
NCPCR is responding to complaints hearings on exploitation of children
l It is much easier for someone
on lack of infrastructure in schools while at work and compels the
in the village (landless labourer and that of corporal punishment in
and illiterate to boot) to engage government to take action on the
schools. It has issued instructions to matter and provide for education
his child in work, even as
bonded labourer than put him all the States to follow procedures of children thus released.
in school. of child participation and also have
It is also working towards
an active interface with the PTAs
l A child comes to school for the establishing protocols for
to create a culture in schools that
first time. He is the first person identifying, rescuing and releasing
would listen to children and stop children from the labour force.
in his family ever to attempt violence on them. NCPCR is of
this. Are the teachers sensitive At the moment there is very little
the view that if schools set correct coordination between the labor,
to this? Is the system sensitive standards for addressing children
to this? police, and education, welfare and
and their needs children would health departments in the process
l Worse still, a child is 10 years remain in schools and not join the of enforcing the law to withdraw
old. He has never been to school. labor force. the child from work. Since each
He now wants to. Does the Despite the ban on employing rescue operation is made in an ad
system have any solution than children as domestic labor, hoc fashion without any reference
putting him along with five year the problem persists. Do you to procedures or precedence there is
olds in class 1? think providing alternative no institutional memory. Currently
The fact is that we have never livelihood for their families NCPCR has started consultations on
tried to make it easy for the parents would be a solution or how can the gaps in the existing institutional
to send their children to school. We this be tackled? framework for rescue of child
simply decided (quite conveniently) labor, based on which it would
SS In spite of the fact that employing
that they don’t want to. recommend guidelines for all the
children as domestic labor is banned
NCPCR has constituted a by law and is a punishable offence States regarding the process of
working group to examine the legal it is unfortunate that the enlightened identifying child labor, rescuing
and policy framework on abolition section in our society, the middle them from work and ensuring
of child labor and children’s right classes insist on employing children. that they are mainstreamed into
to education from a child rights They live a lonely friendless life schools. q
perspective. The report of the lacking in dignity and freedom. (Email : [email protected])

6 YOJANA May 2008

YOJANA May 2008 7
CHILD LABOUR opinion

A Moral Conundrum

Shireen Miller

S
onali, has come For us, on the other side however,
back home to it is surprising and even horrifying
Sandeshkali in West that well informed, educated people
Bengal after two years. are still making excuses for child
She is 12 years old and has labour in 21st century India with
spent the last two years as a domestic its tales of run away economic
worker in Kolkata, cleaning a three- growth.
floor house and cooking for a five- And therein, lies the fundamental
member household. Her eyes brim point. Yes, India has laws and acts to
with tears as she shows her hand regulate and prohibit child labour,
that was burnt by her employer, perhaps not strong enough but no
who poured hot dal on it, as there doubt sufficient. However, until
was a delay in cooking dinner one there are people justifying, tolerating
We can day. Sonali earned Rs. 400 Per and indeed accepting child labour,
month. She fled with the help of a
be the first considerate neighbour.
no amount of legislation will make
any difference. What we need, is to
generation Activists against child labour are
change public opinion, to break the
tolerance and acceptance of child
to actually say often accused of being “bleeding
hearts”, of importing western concepts
labour and what is fundamentally
the gross exploitation of children.
“No” to child into India, of being dreamers. How
While poverty may be the
could we even possibly suggest that
labour to stop child labour should be eradicated in background within which children
a country such as India? work, it can no longer be a
children being justification for child labour, in a
One is then presented with the country with 9% growth rates. Most
exploited or argument that if children do not children who work come from the
work, they will starve, and surely
die of hunger work is better than starvation?
poorest areas of India such as UP,
West Bengal and Bihar and from
The author is with ‘Save the Children’.

8 YOJANA May 2008

the poorest and most discriminated Critically, child labour further and most exploitative labour. And
sections, such as lower castes and deepens the vicious circle of these children and their families can
tribal areas. We also know that in poverty, rather than helping break be exploited in this way because of
the aftermath of natural disasters, out of it. their own poverty and powerlessness.
such as floods or droughts many Increasing urbanisation and the
children are forced into work as The Andhra Pradesh Government
demand for cheap labour has further
their families lose everything- their claims it’s success at reducing child
pushed children into work.
homes, assets and livelihoods. labour from 16.6 lakh in 1991 to
Often children are taken by uncles 2.48 lakh in 2007 as a result of A 13 yrs old bonded labourer
or middlemen into cities for work, increasing access to education. Bindeshwar Mandal was rescued
bonded for years. from I 83-B, Rohini sector – 18, New
MV foundation which was
Delhi. His father Shri Jagat Mandal
H o w e v e r, r e s e a r c h a n d responsible for bringing 400, 000
of Maghepur block of Madhubani
experience has shown that children children out of work and into
district informed that Shivakant
earn very little or even nothing at schools attributes this to community
Jha of his village had taken an
all. Poor parents are ignorant of mobilisation; making families
amount of Rs.26000/- from him in
the law, and often seduced by the both aware of each child’s right to
exchange for 20 beeghas of land.
promises that they are doing good education and of the various schemes However, even after Jagat Mandal
for their child, that he/she will learn that exist to help them access these worked hard by pulling a rickshaw
a trade and send home ever-higher schemes and providing children with and paid the amount of Rs.26000/-
paychecks. They are also unaware appropriate education, once they had in installments to Shivakant Jha,
of the various government poverty withdrawn from there from work. Jha refused to hand over the land
alleviation schemes (28 at last count) to him. Instead Jha had already
Thus, we see that while poverty
available to them. Critically, they do given the same land to Laleshwar
may be the context within which
not think of the damage labour can Singh and he also demanded to
these children live and leads them
do to children’s overall development keep his son, Bindeshwar as a
to be exploited it is not the major
and to their future prospects of bonded domestic labour till the time
constraint. An acceptance of child
getting a much better job. Yet, that he receives the money in full.
labour, lack of viable alternatives,
once they are aware, we also know Whenever, the little boy committed
especially education and functional
that in many cases the poorest e.g any minor error he was brutally
schools is a major factor sending
rickshaw pullers will make sacrifices thrashed by Jitendra and his wife.
children out to work.
to send their children to school and One must also note that Jitendra Jha
not out to work, whereas cotton This begs the question- should is a teacher in a Government School
farmers may send their children out children bear the burden for their and according to the law, if any
to work. Often children are forced parent’s poverty or even inability or government official employs a child
to go to work because the main unwillingness to earn? Is this what below 14years of age, he or she will
earners in their family have fallen we would want or even tolerate for be suspended from their job.
ill, or as is often the case, are severe our own children?
alcoholics. While bonded labour may have
Employing Children ceased to exist in some states, it
Another key push factor for
We also know that children are still persits in others such as UP
child labour has been the lack of
paid half what adults earn at best, and Bihar. Often parents are paid a
education or schools that deliver.
and in many cases nothing at all. down payment by the contractors,
Since the launch of the Sarva
Shiksha Abhiyaan, the government They are made to work long hours- and then never see anything after,
has promised a school within a 1 km sometimes 12- 15 hours a day, in or give their children in labour as a
radius, and education for children unhealthy and unsafe conditions, way of repaying their loans.
between 6-14 has been declared subject to physical sexual abuse and
Childhood stolen
free and compulsory. If this is the being more vulnerable and powerless
case how can we still have universal are exploited to the full. Make no Research shows what is needed
education and child labour. mistake, child labour is the cheapest is a collective commitment to

YOJANA May 2008 9

fulfilling children their right to from $ 170 million to $1 billion designed to combat hazardous and
childhood. Childhood should for the rescue and rehabilitation exploitative child labour.
be a time for education, leisure of child labour. States need to
What can we do?
and protection from harm, address head on the poverty and
protection that we as adults deprivation issues of the families As Child Labour is a complex
have a responsibility to provide of working children, to take problem, occurring for a myriad
children, rather than exploiting effective action for the education of reasons, it will thus require a
them. Political will and political of all out of school children, to consistent, long-term effort, with
commitment, backed by funding release and rehabilitate child broad based strategies that ensure
and a complete cultural un labour, and provide entitlements the long-term goal of eradication of
acceptance of child labour. to the families of child labour and child labour. Critically, eradicating
working children. child labour needs to be seen
Hazardous and exploitative
alongside the commitment to
forms of child work, which While there are schemes like universalisation of education, so
jeopardise children ’s physical, the National child labour plan critical for the countries economic
mental, educational or social which are centrally funded but and social development.
development constitutes child implementation of these rests
labour should be eradicated. with the states. Also, conducting Actions need to be taken by the
These children are exploited rescue operations without any law enforcers, the “employers”-
economically, physically abused, concrete plans for rehabilitation corporates and individuals as well
including sexually. They are or alternatives in place will not as civil society at large. The first
forced to do heavy work, working work. Rescuing children should step is to recognise, that if you
upto 15 hours a day, are often believe that all children should
not be done overnight, but
deprived of food, schooling and have good health, education,
carefully planned always keeping
rest, and work in unhealthy and and some form of play or leisure
the best interest of children in
unsafe conditions. Many earn then child labour is unacceptable
mind. Judiciary and Police need
nothing, or average 15 dollars a and in fact stealing children’s
to be trained to ensure proper childhoods.
month, in a nation whose annual implementation of the act in a
per capita is 3600.. manner that child goes through no Importantly, All actions to
further trauma. Children should be stop child labour should be
The Child Labour (Prohibition
identified and as far as possible re implemented taking the child’s
and Regulation) Act was initiated
intergrated with their families. best interest into account, e.g
in 1986, which bans children under
the family situation, level of
14 from 70 hazardous occupations There is a need to push for schooling, social situation etc.
and processes. However, even the Child Labour Act to integrate Attention should be given that the
according to official count India with other supportive legislations child is not merely moved from
still has 13 million children like Juvenile Justice Care and one labour situation to another, but
working and NGO estimates put Protection Act (2000), Offences to ensure rehabilitation, education
this at upto 60 million. Only Against Children Act and the and development of the child.
60,000 prosecutions have been Immoral Traffic Prevention Act.
conducted since the promulgation Rabia a 12 year old was picked
of the act. States need to put in place up from her village in vishnukantpur
legislation to monitor placement village in Burdwan district by
Labour is a state subject and agencies in the cities which often Ms. Rubina Ahmed to work in her
hence, the implementation of the act as facade for trafficking. house in Ekbalpore, Kolkata. Rabia
act falls within the remit of the parents worked as daily wagers.
states. Each State is supposed to Often children are just at the Her father being an unskilled
have a clearly defined State Action receiving end. There is a need to labourer moved to Mumbai to
plan. The Ministry of Labour has consult them and their views need work with construction contractors.
announced a funding increase to be integrated in interventions Ms. Rubina Ahmed’s daughter Raya

10 YOJANA May 2008

is also the same age as Rabia and considered a violation of the code no access to primary education, and
studies in class VII. Her husband of conduct. of the children currently enrolled in
works for the Kolkata Municipal primary schools, 50 % drop out before
Reach out to the families
Corporation. Rabia does all the completing the primary cycle.
household chores like cooking, It is critical to work with the
Are these, then, the children
washing, cleaning and helping Raya families to ensure they understand
who are going to sustain India’s
get ready and take her to the bus the gross violations children will economic growth, is it the children
stop and back. suffer and the short-term benefits who work in our homes, in the tea
of child labour. Families need to shops, in zari sweat shops that will
A few months ago Gap pulled
be aware of the education schemes contribute to India’s social and
its shirt that had been allegedly
and programmes available for all economic development? Or is it
been made by child labour Why?
children and be helped to access just “our” children who have the
Mainly, because they knew that their
schools and support their children’s right to good schooling, to food, to
customers would not buy anything
education. play, freedom and the innocence of
made through child labour.
Ensure poverty alleviation child hood ?
Corporates need to have a strong
programmes reach the poorest and When you next see a child
statement making it clear that
the vulnerable families especially remember, childhood comes just
it does not accept child labour,
in disaster prone areas. Community once, and for millions of children
communicate this to all staff,
need to be encouraged to put in in India it is stolen far too early. Is
throughout their supply and
place based protection mechanisms ending child labour an impossibility?
manufacturing chain and develop
(Child Protection Committees) with Can we make it a closer reality rather
a code of conduct to implement
the involvement of local police than a distant dream? Granted, it will
this. The requirements in the code
stations, ward committees, labour not happen overnight, but the time
of conduct should be mandatory
department, NGO’s and youth to start is now.
and should be as stringently
groups in both rural and urban areas
applied as any other quality control In the words of. If not now, then
to prevent children form entering
mechanism. when? If not us, then who? At a
the work force, and critically to
time of unprecedented prosperity,
A labour force register should monitor and supervise children we are perhaps the first generation
be maintained, with the Date of once they return that can make this change for India’s
Birth of all workers. Appropriate
Policy documents tell us that children and for the development of
assessment methods should be
children are the wealth of the a civilised society. The choice is
used. If child labour is found in
Nation, our future. Yet we know ours.
a workplace, a corrective plan of
action, within a time bound period that at official count approximately It’s up to us. In a time of
should be put in place which should 13 million children between the unprecedented prosperity, we can
be acted upon by the supplier, ages 5- 14 are working. The UN be the generation to make that
manufacturer etc. The child should says that 55% of the workforce in difference, to actually ensure the
not be ejected out overnight without India is made up of child labour. rights enshrined in our constitution
any form of rehabilitation in place. Over 11 million children are on are delivered, that words like
If the company fails to comply the streets of India unprotected. “equality “actually mean something,
action must be taken or ties with And less than 5% of the union and that all children actually get
the sub-contracted manufacturing budget is allocated to children of an education. We can be the first
unit severed. which only 0.92% of the Union generation to actually say “No” to
budget is allocated for child child labour to stop children being
Companies should know about exploited or die of hunger. The
protection.
all production sites, including of the choice is ours. q
sub-contractors and any undisclosed Eight crore children today
production centre found should be between the ages of 11-18, have had (Email : [email protected])

YOJANA May 2008 11

 Far fewer children missed school in ‘07

T
he number of children The report, which concentrates Pratham says states like
between the age of six and on education in rural India, says the Himachal Pradesh have performed
14 who are out of school number of children in rural India remarkably, which has led to
is coming down steadily. It was who are going to private schools is the overall increase. “In some
6.6 per cent in 2006 and has come increasing. While it was 18.7 per states like Himachal Pradesh, the
down to 4.2 per cent in 2007. This cent in 2006, it increased to 19.3 percentage of government school
is one of the findings of the “Annual per cent in 2007. But Pratham says children taking private tuitions
State of Education Report 2007” this is related more to affordability has come down in a major way,”
released by NGO Pratham. rather than the quality of education Chavan said.
“The positive trend can be in government schools. H o w e v e r, t h e l e v e l o f
attributed to some states like Bihar, mathematics education is coming
“There is an increasing trend here
Rajasthan and Uttar Pradesh which down.The percentage of children
were performing badly some years but we cannot say this is a failure
from Class III to V who can do
back. Now, winds of change are of the government machinery. simple mathematics like subtraction
sweeping these states,” said Madhav The tendency among the parents was 65.2 per cent in 2006. This
Chavan, director, Pratham. is to send their children to private plunged to 59.4 in 2007.
schools as there is a perception that
The survey, which covered There is still a need for further
267 districts and 16,000 villages, they deliver more,” he said. improvement, says Pratham.
indicates the attendance of chldren The quality of education is also “The SSA should concentrate on
and teachers is up. So is the teacher- encouraging. The report says the teacher attendance, which has
student ratio. been ignored till now. In Bimaru
percentage of children in Class I
states, the attendance of children is
“The positive trends can be and II who can read letters, words still very low. This year, much of
attributed to the Sarva Shiksha or more in their own language in the time was wasted by states and
Abhiyan (SSA), which has focused 2007 is 78.3 per cent. This was just the Centre in deciding the funding
on building schools and recruiting 73.1 per cent in 2006. pattern of the SSA.” q
teachers,” Chavan said.

LESS Dropouts, better english

The Annual Status of Education Report 2007
l 59% Class V students in rural Kerala can read simple sentences in English, the survey says, adding that “from the
Hindi-speaking belt, Himachal Pradesh matches Kerala...while Haryana andBihar also perform relatively well with
47.9% and 41.2%.
l The dropout rate has dropped to 4.2% from 6.6%, but still only 74% of children on the roster are attending classes
l 89% of class VIII students in government and private schools in rural areas of West Bengal attend tuition classes.
The national average is about 25%
l 83.3% of class V students in West Bengal took private tuitions. Orissa was next with 50.9%. Less than 5% of the
students took tuitions in Chhattisgarh, Rajasthan, Uttarakhand, Himachal.
l But on the flipside, 58% of Class V children cannot divide a three digit number by a one digit number. “Maths learning
continues to provide bad news”, the report says, adding that maths learning ability of students in rural areas is not
improving
l 40% of children in Class II cannot recognise numbers beyond 10
l 28% rural schools do not have water, 45% don’t have toilets q

12 YOJANA May 2008

Child labour analysis

No More Tools in Tiny Hands

Kailash Satyarthi

T
hink about a regulation enforcement, poverty
child - don’t give her and child exploitation. How to
the responsibility to address the child labour causes
earn a living for her so as to eradicate that practice in
family, don’t punish India? To what extent legislation
her for being born into poor can be recalled by the stakeholders,
illiterate family, try not to strangle and to what extent can the child
her freedom with the rope of current situation be reversed?
underdevelopment and poverty,
this is not her fault. India has been implicitly
recognized as the world’s safe
In 1986, the Child Labour
haven for child labour, which is
(Prohibition and Regulation) Act
wrongly justified by one of the
came into force, establishing the
most recurrent myths behind this
awaited framework to abolish
problem that falls blindly on the
child labour in India. Eleven
We have years later, the issue remains poverty and the underdeveloped-
c o u n t r y a rg u m e n t , w i t h o u t
unsolved, the legal framework
to provide that has been created is openly acknowledging the entangled
dynamics surrounding the child
children with overlooked by the employers
and the enforcement apparatus is labour problem. Some of the
an environment still inexistent. The government, misguided justifications for
in the last notification only child labour include the idea
for their recognized 6669 child labourers that poor families need children
to contribute economically to
full and against the 12.67million child
labourers in India. This situation their survival, since it may be a
harmonious unfolds a series of questions that priority to have something to eat
demand urgent explanations for before even thinking on investing
development understanding the gap between in education or that the cheaper
The author is President, Bachpan Bachao Andolan.

YOJANA May 2008 13

cost that child labour implies for as part of the process for policy Goals. This work is officially
employers may contribute for the change. facilitated by the World Bank and
economic growth of the country. the UN Development Programme
Uttar Pradesh and Kerala are two The aforementioned vicious (UNDP).
such states in which percentage circle interconnects poverty, lack
of people falling under poverty of education and abandonment of The World Bank also leads
line is same. But than also, Kerala human development-led policies, the Education For All Fast Track
have 100% literacy and Uttar being the last element one of the Initiative, facilitating additional
Pradesh is lacking behind. least understood concepts. The line resource mobilization to fill

T
between poverty and child labour financing gaps for developing
oday six crores children are is not direct neither proportional, countries.
working. One child labourer
but certainly important. In
is earning approximately Secondly, there is the overall
this sense, the fact that a big
Rs 10 per day which means that Dakar Education For All (EFA) goal,
percentage of the population
they all are earning Rupees 60 with UNESCO the lead agency.
remains under the poverty line
crore which is just one fifth of UNICEF is also undertaking major
certainly increases the propensity
GDP of our country. On the other initiatives to bring girl children into
hand if an adult is working than he to employ children whose parents
school.
would be earning six to eight times cannot find jobs because of the
more. With which he will be able lack of opportunities and the Thirdly, the International Labour
to fulfill his family’s needs and lack of professionalization, Organization (ILO) is involved in
send his children to school. This but it is not exclusive of poor putting an end to the worst forms of
will help our country to be free countries but associated to low child labour through its Convention
from unemployment, illiteracy human development, since 182.
and poverty. This will bring not education is not widespread, not
even in the elementary level, H o w e v e r, c o o r d i n a t i o n a n d
only social justice and peace in
sanitary facilities are limited, integration among the three
the country but will make it child
opportunities restricted to portion processes are very rare. In relation
friendly too.
of the population and policies are to multilateral and bilateral aid,
On the other hand we can favouring other priorities which developing countries are supposed
find some other arguments that respond to traditional economic to implement Poverty Reduction
in addition to poorly analyzing development paradigms such as Strategy Papers (PRSPs) and
the problem, they support the economic growth rates. country plans. Ironically, child
child labour as a right under the labour eradication hardly figures
specific conditions of being well At the policy making level, the in the PRSP of any country. For
paid and avoiding hazardous lack of understanding, compromise the implementation of Education
situations, claiming that children and connectedness in addressing for All, each country is supposed
need some specialized training education, poverty alleviation and to make concrete and time-bound
before becoming active members child labour is a “top-down” matter. national action plans to achieve
of the national unprofessional It starts with intergovernmental the goals by 2015. But poverty
labour force. Each of these organizations and reaches all reduction programmes in most
statements fails to notice the the way “down” to local self- countries do not have strong
underlying problem, which is not governance. linkages with EFA.

T
unidirectional but multilayered,
and implies a vicious circle In policy making, regarding he same applies to the
that can derive into a virtuous programme delivery, poverty work of many civil
one if and only if coordination, alleviation is now dealt with s o c i e t y o rg a n i z a t i o n s
conceptualization and proper largely under the umbrella of and government institutions
acknowledgment is internalized the Millennium Development at national level. They tend to

14 YOJANA May 2008

run projects on child labour includes increased child labour, has been ‘No more child labour’.
with a narrow vision, whereas rising drop-out rates and even Look at 14-year-old Bunty who
this work should be located juvenile delinquency. These issues won the Pogo Amazing Kids
within the broader economic are not fully captured in the poverty Leadership Award 2007, which
environment affecting families alleviation strategies. was awarded to him by Hindi
and communities, the state of Film Superstar Aamir Khan. This
An anti-poverty, child-friendly former child labourer had worked
labour markets, poverty-related
strategy must pay greater attention in a brick kiln in Tirasi village,
policies, existing development
to converge with other policies Madhepura district, Bihar and was
paradigms, and processes of trade
on education and the elimination rescued in 2001 by BBA activists
liberalisation, privatisation and
of child labour. Education For at the tender age of seven. After
globalisation.
All and the elimination of child having been rehabilitated in Bal
However this vicious circle labour should find a prominent Ashram he went back to his village
can be reversed by the triangular focus in poverty alleviation and helped enrol 60 children in
paradigm, which involved programmes. Government school, Madhepura.
in a horizontal effort, poverty For this and other work, he was
A multi-dimensional approach
alleviation, education and child awarded the Pogo Amazing Kids
consisting of awareness building
labour eradication. Those who
and consciousness raising, Leadership Award. The award
believe that the problem of child
community participation, carries a citation and the award
labour can be solved merely by
alternative and viable social money of Rs. 500,000. During the
the enforcement of laws should
economic rehabilitation, and award ceremony, he won the hearts
know that it is not so simple.
enforcement of national and of the children, audience and the
Free, quality, meaningful and
international legal instruments celebrities present with his innocent
compulsory education is one of the
in relation to children and other yet precocious words, “parents
most effective (preventive, curative,
similar plans is needed for give birth, but it is each one of us
rehabilitative) and sustainable
linking the elimination of child
strategies for the eradication of who carves our space in this world
child labour. labour with the overall poverty
with our deeds; the fruits of good
alleviation and education
work are always good.”
The situation therefore strategies. There is need for a
demands that we build a triangular synergy in policy planning and As Bunty says the focus
development paradigm and programmes that addresses these will also be to promote a better
translate it into action. All agencies, three vital issues that affect the cooperation and understanding
governments and ministries need lives of millions of children for between policy planners, children
a better understanding of the a sustainable development. and advocacy groups working
push-pull factors that link child on children’s behalf. We adults
labour, education, and poverty. Bachpan Bachao Andolan
have a commitment to provide
We need systematic approaches to after its inception in 1980 has
all children of this world with
addressing all three issues together rescued more than 75,000 child
an environment for their full and
through a range of models and and bonded labourers through harmonious development to lead a
schemes. the most dangerous and life life in the spirit of peace, dignity,
threatening raids and are in close tolerance, freedom, equality and
In addition to suffering severe contact hundreds of thousands of solidarity. q
economic hardships, families children. The clear response from
are disintegrating. The outcome these children and their families (Email : [email protected])

Due to unavoidable reasons, the column “Economic Indicators” is suspended for the time being.
– Chief Editor

YOJANA May 2008 15

16
YOJANA May 2008
YE-5/08/10 (DCA-1/12)
 One of the children rescued from a sweatshop in a colony in Delhi

Expenditure between 2005-07 under The National Child Labour Project (NCLP)
In Rs.
States 2004-05 2005-06 2006-07
AP 2,32,220,831 2,11,610,829 1,41,635,611
Assam 6,86,500 1,246,8000 1,240,3500
Bihar 2,82,05,834 4,338,6910 14,267,9960
Chhattisgarh 2,308,0814 36,857,738 31,107,540
Goa 5,92000 0 0
Gujarat 21,53500 44,04,800 15,549,200
Haryana 4,58,500 171,8000 0
J&K 4,58,500 5,92000 0
Jharkhand 19,285,773 37,280,078 18,382,939
Karnataka 33,101,388 50,651,674 52,567,717
M.P. 44,521,226 36,826,745 29,409,567
Maharashtra 16,848,418 19,255,655 27,828,784
Orissa 131,264,355 134,419,118 110,792,590
Punjab 18,404,902 15,528,577 90,20,900
Rajasthan 44,303,713 68,613,939 11,626,9919
Tamil Nadu 72,462,692 98,404,201 62,730,916
U.P. 70,736,376 15,189,2537 18,664,7881
Uttarakhand 61,368 t59,2000 0
West Bengal 74,236,099 83,128,311 99,140,687
Total 813,082,789 100,763,1112 105,616,7711

YOJANA May 2008 17

CHILD LABOUR view point

Problems and Solutions

Meghnad Desai

T
he q uestion o f The issue is whether we can
child labour in India is give children a choice whether
a complex one. At one to work or not, and also as to the
level, there can be no conditions under which they work.
excuse for employing The tragedy of child labour is that
children who should be enjoying the children are compelled to work, due
normal pleasures of a child’s life- to poverty mainly, but also because
schooling, playing, friendships and some craftsmen families routinely
their parents’ company. India is far induct children into work which
short of guaranteeing all its children they carry out at home. This work
that ideal first best situation. in zari production or carpet weaving
or bidi making is hazardous and
Some people may argue that
may permanently maim a child
children not working is not at all
or make him/her myopic. Thus,
natural or even desirable. They
Better consider the criticism of child
while work may be good for all, it
has to be asked whether the work
labour as a Western fashion adopted
it is to by the developed countries who
is voluntary, and whether it is
harmless.
focus on have had the ‘benefits’ of child
labour during their growing period There are enough laws on the
the and are now acting holier than thou. statute book to prevent exploitation
I do not agree with this perspective of children. But we all know that
deprivation at all. It may be good for children child labour is a reality. It is also
of education to combine education with work.
After all Gandhiji’s Basic Education
true that as far as many employers
are concerned, there is no shame in
and health Scheme required this. It may also be employing children. We use them
that there is an element of putting as domestic labour, often saying
and non-tariff barriers on the part of proudly how well we take care
fix that rich countries when they object to
child labour.
of them, and how we help them
out with extra money for special

The author is emeritus Professor at the London School of Economics and a member of British House of Lords.

18 YOJANA May 2008

occasions. We argue that if children or equivalent, and for doing that the child benefits, which will be paid
don’t work they would starve . employer should be paid a sum of only if children are in school, and if
Hence by employing them, we are money. Similarly, employers should they receive regular health check ups
preventing starvation and poverty. be encouraged, either to provide ( at school if possible ). This would

T
itinerant teachers at workplace or if be a payment per child to a family.
he answer to the problem To make it effective and cheat proof,
they employ enough children, they
of child labour is not easy. it should be paid to all parents, rich
should provide schooling facility
This is because not only is or poor. Rich parents may not claim
on the premises. For doing these
there no widespread feeling that it, but middle income and poor
things, employers should be paid a
it is illegal or even immoral, but parents will claim it. A child benefit
subsidy per child educated.
many applaud it as good in itself. can be calibrated to compensate
Of course, children work because It may sound shocking to say parents to keep their children away
they come from poor families. Of that employers of children should be from work and in schools.
course, they could starve if they subsidised. But the subsidy is not for There are no free lunches in
did not work. It is also true that employing them, but for filling the economics; there is not even fast
despite the best intentions on part gaps which are there in the child’s food. Thus, the proposals will have
of the government, prevention will life, and which will affect its future side effects which are negative.
be difficult. development. Paying sums of money The costs of employing children
to ensure that these gaps are filled with will go up, and some firms may go
The answer in my view is to
proper inspection and indeed hoping out of business. While this may be
turn the question on its head. Let
it is effective gives the employers welcomed by some, many employers
us not ask whether children should
incentive to do the right things. Sticks of children are themselves small
work or not. We should ask what
do not work ; carrots may just work. firms struggling to stay in business.
are the things that a working child
This would require creating a special If the subsidy is paid to them, then
is deprived of ? The most important
cadre of itinerant teachers and para- this negative impact is avoided. If
things in view of his/ her future life
medics, who would visit workplaces parents are paid, then there may
are health and education. Working
and look after children. Yet that is be a withdrawal of labour. This
from a young age could be harmful
the best way to deliver the education situation should be foreseen, and
to health, and it takes a child
and health needs effectively at the some alleviation formula should
away from school. A child, who is
place of work. be found for the employers. It is a
deprived of these things, will grow
up to be an adult, ill-equipped to Of course, another way is to fallacy to think that the employers
earn a decent living. Thus, while pay the parents of working children of child labour are invariably fat
current poverty may drive children the same subsidies for ensuring cats who make hugh profits from
to work, it does nothing to cure their health and education. In many employing children.

O
future poverty. cases, parents are also employers .
f course the subsidies or
Here there is no contradiction. If a
Thus, the first guideline about benefits will have to be
way could be found to ensure that
child labour is to ask if we can devised carefully, and they
parents will satisfy their children’s
ensure that whether in work or not, will take some time to work. This
health and education needs , such
a child gets schooling and that the is where my fast food argument
a supplement is the best of both
child gets a health check regularly. comes sin. There is no instant
worlds. Poor parents don’t need
Both these things are easier said solution to the child labour problem
to take children away from work,
than done since primary schools since it is just another form of the
and, at the same time, they are
often don’t have teachers and poverty of the country. Quick fix
encouraged to look after the needs
primary health centres are under- solutions like banning child labour
of their children.
staffed. My proposal is to make will not work and may cause much
it worthwhile for the employers What I propose above is not the misery. Better it is to focus on
of children to seek these things. first best which is to take all children the deprivation of education and
Every child who works should get a away from work. It accommodates health and fix that. q
health check every fortnight from a itself to the problem. A better way in
certified primary health care centre the same spirit would be to create (Email : [email protected])

YOJANA May 2008 19

 What the Constitutions says
n Article 21A casts a duty on the State to provide free and compulsory education to all children of the age
of six and 14 years in such manner as the State, may, by law, determine.

n Article 24 of the Constitution says: “No child below the age of 14 years shall be employed to work in any
factory or mine or engaged in any other hazardous employment.”

n Article 39(f) of the Constitution says: “The State shall, in particular direct its policies towards securing that
children are given opportunities and facilities to develop in a healthy manner and in conditions of freedom
and dignity and that childhood and youth are protected against exploitation and against moral and material
abandonment.”

n Child Labour (Prohibition and Regulation) Act, 1986 prohibits the employment of children below the
age of 14 in factories, mines and in other forms of hazardous employment.

And child labour on

Childhood Lost
How the States fared
Inspections Violations Action
conducted detected taken
Bihar 183 113 20
Chandigarh 71 0 0
Delhi 127 26 12
Goa 2,000 2 0
The Law: On October 10, 2006, the Centre
Gujarat 10,389 2 0
banned the employment of all children below
Haryana 434 6 6 14 years of age in dhabas/hotels, as domestic
Karnataka 6,491 316 19 help in homes and in any form in the
Kerala 4,479 12 1 hospitability industry. A massive awareness
Orissa 154 200 0 campaign was launched with the help of NGOs.

Rajasthan 371 14 0
Punjab 1,142 162 23
l In some states, rescued children were sent back
Tamil Nadu 1,683 20 2 to their parents or guardians or admiitted in
Tripura 336 4 0 government homes and schools
Uttar Pradesh 1,669 556 0 l Many states are yet to file a single case against
those tho violated the law, or file a status report
West Bengal 983 15 6
on the action taken

20 YOJANA May 2008

YOJANA May 2008 21
best practices

Children as change makers

Kiran Sharma

D
eepak, a 12-year- of balpanchayats, or children’s
old from Chinchtakli forums, in the village. Taking
village in Gangakhed turns, the balpanchayat members
block of Parbhani befriended Deepak and told him
district (Maharashtra) about the fun they had in school.
had to drop out of school due to his They also spoke about the vital role
family’s poverty. Deepak’s father of education. Enthused by their talk,
had taken a loan for his sister’s Deepak borrowed the children’s
marriage and the family was deeply text books, and started to read as
in debt. Deepak had to help bring the goats grazed.
in extra income by rearing goats Then SEDT and the balpanchayat
Taking on Responsibility : Bal panchayats have belonging to other households, organised a school enrolment
been successful in sending children from 220 along with the family’s goats. For programme in the village. Deepak
villages back to school
this work, he received Rs 500 per was asked to be present at the rally.
month.
Balpanchayats Subsequently he and his parents
were persuaded to attend a block-
In early 2007, Deepak’ story
are spreading came to the knowledge of Datta level rally held in June 2007.

messages Jadhav, a field worker of an NGO

called Socio Economic Development
All this had the desired impact
on Deepak’s father. He decided that
on environmental, Trust (SEDT) working in the region. a long-term investment in Deepak’s
SEDT has been involved with future was wiser than making him
health sanitation children’s issues for over 25 years. work. He sold the family’s goats.
But it works in unconventional And today Deepak is in class VI,
and ways. Datta Jadhav did not directly back with his friends.
gender appeal to Deepak’s parents, to put
him back into school.
In a similar way, balpanchayats
have helped bring children back
equity issues Instead, a subtle campaign was to school in a number of villages
launched by the young members in Parbhani district. Under a
The author is Director, Poorest Areas Civil Society (PACS) Programme.

22 YOJANA May 2008

project of the Poorest Areas Civil Society (PACS)
Programme, bal panchayats initiated by SEDT
have ensured that around 220 villages in Parbhani
district are `shala-bahar mukt’-- all children are in
school and the village is completely free of child
labour.
Each balpanchayat has 20-30 enthusiastic children
from class V to class VII who have volunteered to
work for the benefit of the village. After dialogue
with the children, systematic training is undertaken.
The children are informed about basic child rights-
--like right to education and right to play. They are
also familiarised with SEDT’s pivotal vision--making
the child and the school the focus of the village’s
development.
Balpanchayats along with other community
bodies like mahila gathans (women’s groups), village
education committees and youth groups work to
bring children back to school. As 10-year-old Mukta
Ingle of Sategaon says, “We tell parents if your child
works, he or she will get only Rs 25 per day but if you
send him to school, he will get the world. A future
is assured.”
Balpanchayats along with other community bodies
also help retain children in school, by making it an
attractive place. With minimal funds obtained from
government programmes, schools have been beautified
and turned into exciting environments.
Balpanchayats are also spreading messages
on environmental, health and sanitation
and gender equity issues in a region that has
officially been designated backward. q

(Email : [email protected])

YOJANA May 2008 23

24 YOJANA May 2008
YOJANA May 2008 25
26 YOJANA May 2008
YOJANA May 2008 27
CHILD LABOUR opinion

Change of Societal
Attitude Imperative
Dhurjati Mukherjee

C
hild labour at work compared to 19-20 per
represents a fundamental cent in Asia. Similarly within South
abuse of child rights Asia, the intensity of child labour
and a violation of varies with India having the largest
international and number of such workers. But it
national laws. Many working needs to be pointed out that. most of
children who are employed as these children work to support their
bonded labourers or prostitutes families due to dire necessity.
are engaged in occupations that
negatively affect their physical, Despite legislative and policy
Children mental or moral well-being and measures and institutions geared
to addressing child labour, its
are below their country’s minimum
are the age for employment. Meanwhile magnitude in the Region has
not declined. This indicates that
future reports of rampant physical abuse of
children in various ways have been more needs to be done in making
Torch-bearers received from different countries, poverty-focused programmes
including India. effective as also spreading the
of the country network of basic education to the
South Asia is the home to the rural and backward areas of the
and they have largest number of child labourers Region, which unfortunately has
to be cared in the world. Even the most
conservative estimates suggest
not been accomplished to the extent
necessary.
and that there are 30 million children
at work in the Region’s five large There are powerful arguments
nurtured countries. However the intensity for elimination of child labour for
properly of the problem is highest in the
Sub-Saharan Africa where 20 to
only then can a healthy society take
shape. Not only is child labour an
30 per cent children under 15 are effect of poverty, it is also a major
The author is associated with, State Habitat & Environment Forum, Kolkata.

28 YOJANA May 2008

cause of poverty, as is indicated by group, Andhra Pradesh with 13.6 level committee, headed by a /
the long-term inverse relationship lakh child labour stands second in strict Collector, who would also
between child labour and a country’s the national list after U. P. monitor the scheme. The students
per capita income. In a study by the in these schools, which would
According to a Unicef report,
World Bank (1998), it was found be set up near the chills endemic
World ‘s Children 2006, India has
that countries with an annual per areas, would get stipend of
the largest number of working
capita income of US$ 500 or less Rs 100 from the government every
children and 17 per cent of them are
(at 1987 prices) the labour force month. They would be covered
under the age of 15 and girls aged
participation rate of children aged under other government schemes
12-13 are the preferred choice of
10-14 was 30-60 per cent compared like the Sarva Siksha Abhiyan
90 per cent households. Noting that
to only 10-30 per cent in countries (SSA), the officials of the Human
all children should have access to
with an annual per capita income Resource Development Ministry
quality education, the ILO believes
of $ 500-1000. pointed out.
that universal access to schooling
Another study by the is a key component in ending Meanwhile with effect from
International Labour Organization child labour and their exposure to October 10, 2006 hospitality
(!La, 2003), which was the fist violence in the work place.
industry and domestic helps
integrated analysis of the economic
In India, the problem has received have been put under child labour
costs and benefits of eliminating
the needed attention, specially regulations as the government is
child labour, found that the benefits
in recent years. The Ministry of determined to check this menace.
of such elimination in Asia would
Labour has asked the Planning Also the recent enactment of
be nearly seven times greater than
Commission for about Rs 1500 Offences against Children Act
the costs. The reduction of child
crores to cover all the 600 districts (drawn up in 2006) is expected to
labour would also help achieve the
under the National Child Labour help a great deal in looking at the
health and education aspects of the
Project (NCLP) as against the 250 welfare of children. In fact, the
Millennium Development Goals
at present. It may be mentioned country has woken up to the need
(MDGs)
here that the NCLP, launched for a comprehensive strategy to
Indian Perspective in 1988 to rehabilitate working tackle child labour as also deal with
children, has been the largest various types of crimes perpetrated
The Hindi belt, including Bihar,
programme of the Labour Ministry. against children.
Madhya Pradesh, Rajasthan and
It would now be the country’s
Uttar Pradesh, commonly known
biggest project to cover 1.25 crore It may be mentioned that India
as the BIMARU states, account for
child labourers. According to the is a signatory to the United Nations
a chunk of the 1.27 crore working
Ministry, children working in 57 Convention on the Rights of the
children in the country, engaged in
hazardous industries and in dhabas Child and it had the document
both hazardous and non-hazardous
and homes (in the 9-14 age group) ratified in 1992. Article 19 of the
occupations and processes. The
would be covered under the project. UN Convention of the Rights
maximum number of over 19
“Non governmental organizations of the Child mentions: “State
lakh child labour in the 5-14 age
(NGOs) would be authorized to parties shall take all appropriate
group is Uttar Pradesh. Rajasthan
open residential schools for 40 legislative, administrative, social
accounts for over 12.6 lakh workers
children in each district to bring
followed by Bihar (over 11 lakh) and educational measures to protect
them back to the mainstream”.
and Madhya Pradesh (10.6 lakh). the child from all forms of physical
Howeyer, according to the 2001 Schools are expected to be or mental violence including sexual
census, in state-wise distribution opened in most districts after abuse Such effective measures
of working children in the 5-14 age a detailed survey by a district should include effective procedures

YOJANA May 2008 29

for the establishment of social into India every year. The South school, at least till they reach the
programmes to provide necessary Asian and the South East Asian age of 14. In this regard, non-
support for the child”. But it took region has been the centre for governmental organizations (NGOs
the country 13 years to formulate large scale trafficking of children, and community based organizations
a law in which sexual offences are specially young girls for sexual (CBOs) would have a vital role to
brought to the fore and it is not exploitation. play and the government should
known when such offences would enlist their support in a bigger way
Apart from this aspect, the
be curbed with an iron hand. to make inroads in the backward
employment of children in
regions of the country.
It is generally agreed that hazardous industries is another
children being the most vulnerable cause for concern. The mining The Tenth Plan pledge of all
sections of society have been the industry is one such sector as a children being in school could not
soft target for large-scale human result of which child labour is be achieved due to various obstacles
trafficking. In fact, child trafficking rampant in Bihar, Jharkhand and and it is expected that this would
is happening for different legal and West Bengal. Of course, other become a reality by the end of the
illegal purposes. These children, affected states include Andhra Eleventh Plan. One may mention
mostly coming from poor and Pradesh, Madhya Pradesh and here that other targets of completion
backward communities, have no Rajasthan that are traditionally the of five years of / schooling by 2007
other option but to join such work BIMARU regions of the country. and a 50 per cent reduction of the
and then are exploited in different gender gaps in literacy and wage
Challenges
ways at the whims and fancies of rates by 2007 could also not be
the people engaged in this illegal It is widely felt that only achieved. Even the government has
trade. legislative measures would not cut admitted to its failure in the Mid-
down the various offences against Term Appraisal and underlined the
Children are forced to work
children. This is because not much urgency of addressing violence
in circuses, in factories, in hotels,
has happened. Questions have against children and refers to
engaged in forced prostitution
or sexual exploitation, drug arisen why the labour inspectors major problem’s of children’s
peddling and smuggling. Besides, are not being stringent in bringing security, emphasizing the greater
they are also forced to work as the violators to book. Why aren’t vulnerability of girls.
bonded labourers, domestic help, they asked to submit time-bound
There is no doubt an imperative
agricultural labour, spot boys etc. reports on the enforcement of the
need for strong political will in this
Despite all talks to bail them out law? Child labour is not an isolated
regard and strong partnerships with
of inhuman conditions, successive problem. Many ministries such
the non-governmental organizations
governments over the years have as labour, education and women
(NGOs) and CBOs who should be
been a mute spectator to the and child welfare would’ have to
given major part of the work in
oppression against children. coordinate to make sense of the
ensuring that children are assured
spirit behind the law.
It would be interesting to of their rights. It is well known
know that, as per findings of the There is need for large-scale that these organizations work with
International Organization for social infrastructure development the community and their ability to
Migration (IMO), the global human that is, special emphasis on penetrate and carry out the desired
industry generates up to $ 8 billion education and health. Moreover work is well known The children
each year. The report has further strong political will and involvement are the future torch-bearers of the
pointed out that an estimated 5000- of the community would be greatly country and if they are not cared and
70000 young girls between the necessary to curb child exploitation nurtured properly, the future may not
5 to 10 age group are trafficked and ensure their attendance in be all that encouraging. q

30 YOJANA May 2008

YOJANA May 2008 31
CHILD LABOUR view point

Myth and Reality

Subhash Sharma
Devendra Mishra

T
oday at the national It is delighted to note that Laxmi
and international scene, Niwas Steel Mitta, Tata Jindal,
the ever growing middle Azim Premji, Ambani and several
class in general is others have emerged as global
enthusiastic about the industrialists and their names have
attractive and provocative figured in the Fortune and Forbes.
song and dance programmes of It is jubilant that Indian girls like
Michael Jackson, Hritik Roshan, Aishwariya Ray, Priyanka Chopra
Rakhi Sawant and others, or is and Sushmita Sen were crowned
mesmerized by ads like ‘Thanda Miss World or Miss Universe and
Matlab Coca Cola’, ‘Yeh Pyas the whole world has recognized
Hai Badi’ and so on. It is busy in the Indian beauty. It is proud of
watching reality shows, laughter Indian software technology under
shows, Jack pots, K.B.C., or mega the able leadership of Narayan
serials like ‘Kahani Ghar Ghar Murty, is extremely happy that the
The Government Ki’, ‘Kasauti Zindagi Ki’, ‘Saas
Bhi Kabhi Bahu Thi’, etc. on T.V.
sensex is constantly scaling new
heights and, therefore, India would
and all its screens, or it is happy that Amitabh emerge as a developed country
Bachchan was awarded a doctorate
agencies degree honoris causa (by Delhi
on the world map very soon. It
is highly impressed with the new
should look at and Leicester Universities) for
his contribution to Indian cinema
magic bullets of liberalization,
privatization and globalisation
child labour following which the ‘Big B’ is
(LPG) as a panacea for all. the ills
generously handing out autographs
eradication not as to the crowd of teachers, researchers
of Indian economy and society.
and students of Delhi University. It But unfortunately such a huge
sympathy but as a is overjoyed to see the big malls middle class, not to talk of the small
social necessity and chain of stores of international
standard at various metropolitan
but most powerful upper class, is
actually a confused lot. It mistakes
cities of India and considers these mineral water for purity, cold/soft
as a yardstick of India’s prosperity. drinks for healthy snacks, laughter
The authors are senior civil servants.

32 YOJANA May 2008

show for happiness, rise in sensex is associated with the latter. leading adult lives, working
for economic development, an oasis Further, it deprives children of with or without wages, under
of the well to do selected persons/ education and restricts them to conditions damaging their physical,
sections as social development, the traditional and hereditary social, emotional and spiritual
and virtual reality for the social tasks only. development, denying them their
reality. basic rights to education, health

T
= That child labour is inevitable
and development. This includes
he conscience of the upper and irreplaceable. Such notion
children working in any sector,
and middle classes is not is blemished because many
occupation or process, including the
shaken when they see developed countries of Europe
formal and non-formal, organized
children of 5 to 14 years of tender have eliminated child labour
and unorganized, within or outside
age working day and night in and even in Kerala (South
the family” Thus we believe that
different activities ranging from India) the magnitude of child
any child who is deprived of school
agriculture to manufacturing and labour is extremely low.
education is an example of child
service sectors, losing out on their
= That child labour is essential labour even if he/she is not working
childhood. At first they do not
for learning new skills and outside the family.
even consider children working in
techniques and childhood the
agriculture as a form of child labour The domestic child labour in
appropriate age for learning.
because, in their view, agriculture is India. Governmet. of India (Ministry
But actually there is no fixed
the ‘given’ or ‘natural’ culture and of Labour) has banned the domestic
age for learning, rather it is a
context of their life or because it is child labour/servants along with
life-long process. Learning skill
not considered hazardous to them. child labour in teashop, dhaba,
as a child labour at a tender
Similarly they consider domestic restaurant and entertainment centers
age results into educational
child labour as non-hazardous with effect from 10th October 2006,
deprivation and perpetuation
hence it is to be continued. Further through a notification (in total
of low-income job forever.
they perceive that girls are meant 15 occupations and 59 industrial
for doing domestic chores and = That child labour cannot be processes have been declared
taking care of their siblings. But eliminated till the income hazardous for children below 14
these are myths that need to be poverty is totally eliminated. years). Consequently, if child
demystified and dejargonised for But this at best, is a half- labour is found in such activities
calling spade a spade. truth. For elimination of the employers will be penalized
child labour, distribution and with one year’ imprisonment or a
Social and intellectual myths proper management of fund fine of twenty thousand rupees or
= That childhood is part and as well as good governance is both. Here domestic child labour
parcel of every individual’s more important than the total means paid work by children for
personality and it is not eradication of poverty in one others outside the family. They are
separable from adulthood. This go. Kerala is a suitable example engaged in various tasks which
however, is as incorrect premise in this regard. families have to do as a routine
because childhood is not only a
= That inequality is given and like washing clothes and utensils,
separate category but also the
inevitable, hence child labour cleaning the house (including the
golden period for formation of
personality and children are the is essential for social cohesion, outdoor front and toilets), fetching
future citizens of every society- harmony and equilibrium. This water, cooking, marketing, taking
child is the father of man’. is not true because inequality is grains to flour mills for grinding,
more of a socio-economic and baby sitting, elders’ care, looking
= That child labour is necessary political creation than a natural after the pets as well as gardens,
for the socialization of one. Inequality actually leads to taking children to schools, grazing
children-learning the ins and social tension and disharmony and tending cattle, etc. Following
outs of new expected roles and and child labour reflects such characteristics of domestic child
functions with positive effect. an inequality. labour are notable here:
This too, is not wholly true
because there is a distinction Hence we tend to agree with l Most of the activities that child
between socialization and a broad definition of child labour labourers carry out relate to
exploitation and child labour to include: “children prematurely drudgery, monotony, dirt and

YOJANA May 2008 33

 fiith; easily given the work of washing l The domestic child labourers
of female’s under garments there face restrictions on dress or
l Domestic child labourers have
is no threat of sexual assault on watching T.V., listening to radio,
to work for long hours;
girls of employer’s family, they going out for entertainment or
l They get nominal or little wages can easily mix up with the girls gossip, etc.
for their onerous work-almost of the family and so on. Such a
l The like-in domestic child
1/3 to 1/2 of the adult wages; preference is grounded in the
labourers get holiday only once
l They are pressurized to be gender division of labour in a
or twice a year.
perfect in the work they carry patriarchal society.
l The monthly wages of live-in
out; l Further among the girls tribal
domestic child workers ranges
l They are invariably punished girls are usually preferred as
between 500 to 1000 rupees in
even for petty loss/damage in they talk less and work more and
addition to fooding, lodging and
terms of physical torture or are more docile and sincere.
clothes whereas that of part-time
economic compensation or There are two types of domestic
l domestic child workers ranges
both; child labour-’part time’ or between 100 to 300 rupees
l There is insider-outsider, ‘non-resident’ child workers a month depending on hours
privileged and deprived as well doing one or two hours of of work or number of tasks
as employer-servant relationship sweeping, washing or cooking performed.
between all the family members and ‘resident’ or ‘live-in’ child
l Many domestic child workers
(including children) on the labourers who stay at the house
suffer from TB, cough, fever,
one hand and domestic child of the employer and get food,
skin diseases, back pain, burn,
labourers on the other; clothes, etc. (or inferior quality)
asthma, etc. due to the dirt, dust
in addition to salary. They work
l They are denied access to the and unhealthy environment.
12 to 16 hours daily (but are on
place of worship or rooms or call for 24 hours) they are over- l Most of the domestic child
valuables in the house. burdened with work and tend to labour belongs to the subaltern
l They take care of the requirements be more victimized. groups (lower castes/classes
of children of employer’s family communities) in our society.
l Often domestic child labourers
forgetting their own childhood, are sexually exploited by the The question arises whether
thus these exists a paradox - employer or his sons/cousins/ domestic child labour can be fully
for taking care of employer’s nephews or even by others eradicated, and if so, how? First
children the child labourers are while going to shops, flour mills, and foremost it is our firm belief
supposed to act in matured ways fetching water and so on. that all kinds of child labour can be
like adults whereas regarding abolished-including domestic child
l Though Government employees
payment of wages or facilities labour. It is no doubt a challenging
the employers treat them as are prohibited to keep child
task but not impossible. Following
merely children. This often labourers as per their conduct
measures are required for the
results in role-conflict. rules, they often keep them. A
elimination of domestic child
study by Arunodaya in Chennai
l There is no reciprocity of trust labour.
found that 26% of all the
and love between the employer domestic child labourers in city First, advocacy and awareness
and the employed child labour. work in Goverment employees’ generation is the beginning of the
l Girl domestic child labourers houses despite State Govt’s ban process of elimination of domestic
are preferred to boys (e.g. in on it. child labour. Since it is largely the
Kumbharwada, Bhavnagar, houses of the educated upper and
l Among the employers of
Gujarat more than 85% of all middle class families where child
domestic child labour almost half
domestic workers are girls) labour is much in vogue, such
are usually factory owners and
because they are more docile, families need to be sensitized about
businessmen, 25% Government
they are the least demanding, the ills of child labour.
employees, 20% professionals
they can move to female (like advocates, engineers and Second, as Rammurti Committee
members’ rooms, they could be doctors) and 5% others. 1993 (appointed by the Government

34 YOJANA May 2008

of India) had pointed out, there of freedom from family and landless families migrate from
should be focus on early childhood neighbourhood, hence they should these deficit rural areas due to ‘push
care and pre-school childcare be engaged more in innovative factors’ to urban areas in search
through creches, Anganvadis/ project works in schools/alternative of jobs and usually their sons and
Balwadis. ICDS projects should be centres and be given opportunities daughters start working as domestic
strengthened and streamlined. In to visit places of historical, cultural helps because earning by the adults
urban areas most of the domestic and social importance to get are not sufficient for the whole
child labour hail from migrant inspiration from them. family’ basic needs. However, it
families residing in slums, hence is emphasized that abolition of
Fifth, there is a need to enhance
special attention is to be given child labour and universal school
adult wages so that the children
to children in slums through education are not dependent on
of such wage earners are not
Anganbadis and schools. the level of per capita income or
compelled to work as domestic help
level of industrialization or socio-
Third, the quality and mode of (or in other tasks) for additional
economic status of families as
education provided at primary and income, It is so because child
Kerala has achieved near universal
middle school levels is distractive workers are cheap in comparison to
schooling and a very low incidence
and non-inclusive. The education adults. In the age of globalisation,
of child labour at a relatively low
system, due to its stereotype liberalization and privatization,
level of per capita income.
curriculum, archaic methods, lack public sector jobs have drastically
of qualified teachers, shortage of declined, and labour laws have Finally, Article 24 of Indian
teachers, and lack of infrastructural been relaxed and deregulated due Constitution says that children
facilities like building, toilet, to lobbying from industrialists below 14 years of age will not be
playing ground, sports facilities, (especially to attract foreign direct employed in hazardous works/
black boards, drinking water and investment), hence there is a factories. This indirectly implies
so on excludes the poor children tendency for informalisation and that they may be employed in non-
either in the beginning itself or in contractualisation of jobs. Therefore hazardous works. But actually for
the middle period as drop-outs. these anti-labour trends should be children all works are hazardous
The education system should be stopped by the State in the interest if they are deprived of education,
made child-centered, problem of the working class by providing games and childhood. Hence
posing, flexible and full of co- medical, insurance, food security Article 24 should be amended and
curricular activities so that children and social security facilities to the for children all works be declared
are liberated and consceintised. marginal people at large. hazardous. Further it should be
Minimum level of learning is to be added therein that child means a
Sixth, there should be a genuine
ensured and instead of pass-fail, person below 18 years of age.
commitment on the part of labour
grade system should be introduced. If we have clear goals, proper
enforcement machinery, on the
The rescued child labourers should initiative and spirit to eradicate
other hand, and political will, on
be admitted to the government the domestic child labour, it can
the other, to the spirit of Indian
schools in appropriate standards so be done sooner or later as every
constitution which provides under
that they enjoy “freedom from fear” problem has a solution, Human
Directive Principles that children
from the closed formal schools. beings often create problems due to
should not be forced to work hard
Shanta Sinha (now Chairperson, which is against their tender age.. systemic or individual reasons but
National Child Rights Protection The officials concerned should be they can solve them also provided
Commission) and her MV sensitised about the legal machinery they have strong will power to so.
Foundation (Andhra Pradesh) and the practical strategies The time has come to eradicate the
have successfully implemented this suitable to local conditions for the stigma of child labour in all forms,
mode of mainstreaming through a implementation of the law banning from different places in the country.
‘bridge course’ for the rescued child domestic child labour India cannot become a developed
labourers in Andhra Pradesh. This nation unless we remove the child
Seventh, it is also significant that
needs to be scaled up and replicated labour totally. We have to expose
land reforms should be seriously
elsewhere. those who have written the destiny
implemented in backward States
of child labourers with thorns,
Fourth, the rescued domestic like Bihar, Orissa, Madhya Pradesh
thereby crushing and restraining
child labourers also have a sense etc. in letter and spirit because the

YOJANA May 2008 35

these buds from flowering and another Directive principle, makes child labour’s family in nearby area
fruit-bearing. This is not wishful it obligatory on the State to direct and if no employment 50001- rupees
thinking, but it is backed by the its policy towards securing ‘the be deposited in a fund maintained
Indian Constitution. Article 21 of health and strength of children and by the District Collector) and from
Indian Constitution provides for that they are given opportunities its interest child is to be supported,
right to life and personal liberty but and facilities to develop in a healthy similar provision should be made
unfortunately the domestic child manner’. But unfortunately the for rescued domestic child labour.
labourers are deprived of the same. Government of India did not
Further, Article 21A after the 86th It is sad that a lot of money was
implement a rehabilitation package spend on advertisement declaring
amendment provides education
for the domestic child, labourers domestic child labour illegal since
of children (6-14 years) as a
fundamental right but unfortunately who were not to work since 10 10 October, 2006 but not a single raid
domestic child labourers are usually October, 2006 as per the new has been conducted in this regard.
literate. Further article 39(e), a provision. Actually as Supreme Hence the Government and all its
Directive principle of State Policy, Court had rightly directed that agencies should look at child labour
provides that the tender age children the employer has to pay 20,0001- eradication not as sympathy but as a
are not to be abused, that is, they rupees for engaging child labour in social necessity for a better nation,
should not be forced to do work hazardous activities, and secondly which is possible. q
which is against their strength and the State Government has to provide
tender age. Again Article 39(f), employment to the adult member of (Email : [email protected])

Social audit soon to check for child labour

M oving swiftly to avoid

being rapped for “child
labour” under a US
gazette notification issued last
year, the government expects
August last year, it was possible for
anyone to lodge a complaint with
regard to child labour being used in
an export to that country. This had
obvious implications for India, as
This is an era of traceability
and EPCs (need) to examine
supply chains in their industries.
The entire process of a social audit
needs to be completely transparent
perspective plans— covering the law could be used by activists and be made a public document.
entire supply chains in sensitive as well as commercial rivals. If a ‘The government has decided
exports like gems, sports goods, case is registered and it goes into that the National Commission
apparel, carpets and handicrafts— the US legal process, it can be very for Protection of Child Rights
to be ready within a month. The time consuming. chairperson Shanta Sinha would
plans aim to institute a “social The government was also interact with EPCs on a quarterly
audit” which makes manufacturing spurred into action by exposes basis to monitor that action points
processes in industries likely to in the British media last year of identified are implemented.
be found violative of child labour children working under abominable
laws subject to external scrutiny, The commission will examine
conditions in Delhi’s Shahpur Jat how plans for elimination of child
the results of which will be put up area for a sub-contractor to the well-
on websites of export promotion labour in areas like Varanasi,
known apparel retailer Gap. There Bhadohi (carpets), Jalandhar
councils (EPCs). The “clean” is concern that lax implementation
certificates are seen to be a pre- (sports goods) and Surat and
of anti-child labour laws would
emptive measures against action leave exports vulnerable to bans. Bhavnagar (gems and jewellery)
in the US. are progressing.
What is also worrying the
We have to look at the supply government is that there are no The government hopes to
chains. This means that even if a concerted efforts to check use involve child rights NGOs in the
carpet manufacturer is not using of children as labour. Even after social audit and such organizations
child labour, exports could be hit adverse exposure in international have already been consulted. The
as the supplier of zari that goes into media, the attitude of suppliers external audits which will be
the product is found to be using and sub-contractors has been set up have to work with local
children. The US notification had unrepentant and it is also not clear administration on issues arising
substantially expanded the area to what extent exporters take the out of employment of children
of scrutiny with regard to child trouble of ensuring that they do not belonging to migrant communities
labour. fall afoul of laws in US and other and children subjected to
Under the US law, enacted in western nations. trafficking. q

36 YOJANA May 2008

 J&K Window
Kashmiri women as peacemakers
Kavita Suri

B
efore the partition of the elected legislator, she is in politics to work in the absence of their
country in 1947, Kashmiri by virtue of being the wife of the menfolk who became prey to the
women had little social role Congress Member of Parliament, mindless violence, thus breaking
to play. While those belonging to Mr Lal Singh, who vacated his the stereotypes related to women,
the aristocratic families would seat for his wife when he won the especially in the background that
remain confined to their homes, parliamentary election. The other they had no work experience
the rural women would participate two, Ms khem Lata Vakhloo and and were forced to support their
in almost every domestic and Ms Shanti Devi, are nominated families and take over as head of
agricultural chores - working in the members. the family.
fields, harvesting of paddy and so
on with their men. As professor Hari Om, a former This clearly gives us an insight
head of the history department, into the fact that they aren’t the
But even this active role did University of Jammu, and member, passive recipients of conflict as
not give them complete economic Indian Council for Historical most of the agencies see them
independence and higher social status research (ICHR), puts it: “The to be, but have an inborn, innate
as it was predominately a patriarchal only visible face in Kashmir resilience, the will to survive in the
society. They always remained politics has been that of Begum most challenging of situations.
under-represented in political and Sheikh Abdullah, wife of Sheikh
decision-making position; hence But then has anyone pondered
Abdullah who became a member
there could not be a perpetuation over why women are not part of
of Parliament twice, but that too
of policies and practices that could the dialogue processes that are
by virtue of being the Sheikh’s
serve the needs of women. now unfolding in the terrorism hit
wife. And now, Ms Mehbooba
state? No Kashmiri women, except
Mufti, MP, president of the People’s
After independence, Kashmiri the high profile PDP president,
Democratic Party and the daughter
women got a boost when reforms Ms Mehbooba Mufti, has been
of former Jammu and Kashmir
took place in various fields, included in Prime Minister Dr
chief minister Mufti Sayeed.”
including education, which Manmohan Singh’s five working
brought women out of the shackles. Prof Hari Om feels that these groups on Kashmir set up after the
Encouraged and motivated by the handful of women have been able to second Round Table Conference.
state government, many women carve out some political space only Not a single woman from the state
took up jobs in various fields during because of their political family was included in the conferences.
the past 60 years. background.
Does it mean that women are not
But even in these six decades, a Political patronage or background stake holders to the peace in Jammu
strong women’s political activism may be alright but what the Kashmiri and Kashmir?
is still not visible on part of the women have witnessed in the past
Kashmiri women. Women in Ask Professor Hameeda
17 years of violence in the Valley
the Valley are not only under- Nayeem, who teaches English
is something different. They have
at Kashmir University and is a
represented in political and social not only lived through political
founder-member of the Women
life, but the conservative Kashmiri turbulence but also negotiated and
Waging Peace, an initiative of
society is the main barrier and renegotiated their roles in the
Harvard University’s Kennedy
constraint in their participation. conflict that also does not remain School, and she responds: “In our
static but keeps on changing. society, there has been a cosmetic
Ironically, in the 89-member
state Assembly, there are just three In these past few years, the empowerment of women. Ours is
women members. While Ms Kanta women have donned a new role; a very parochial society. Even if
Andotra of the Congress is an they came out of their houses we assume women have a greater

YOJANA May 2008 37

role, we need to know who are they candidates and members of electoral In the first civic polls in which
representing? Only the daughters of committees, could play a crucial women participated, a total of 934
politicians contest polls, that too if role in the advancement of women women contested the elections,
there are no sons to carry forward and the reconstruction of violence- indeed a significant number keeping
the legacy.” Prof Nayeem’s passport ridden society. in mind the fact that women never
has been confiscated by the Union tried to break the stereotypes and
Professor Rita Jitendra, enter politics. Of these, 270 women
government for her activism. renowned women’s rights activist ultimately made it to the municipal
Women in Kashmir are greatly who was also member of the council and committees throughout
Jammu and Kashmir State Women’s the state.
bothered by the non-representation
Commission, believes that though
of women at various intra-state women haven’t come forward in the What surprised the world was
dialogue processes too. Mrs Seema political sphere in the real sense, the fact that Kashmiri women,
Khajooria Shekhar, Additional yet for the first time in the past 27 desptie facing strong barriers in
Advocate General, J&K (who years in the troubled history of the these polls due to coercion by male
incidentally is the first women state, the local (civic) polls held in relatives, threats of intimidation
AAG in the history of Jammu and Jammu and Kashmir in February- by militant groups contested. One
Kashmir) strongly believes that the March 2005 have given us enough sixty one women contested for the
absence of women in these working proof of women’s activism. Jammu Municipal Corporation,
groups is both unacceptable and 61 for the Srinagar Corporation,
“What else do you require?
short-sighted, especially as the Involve women in all decision 27 for Kupwara, 75 Baramulla,
women and children are the worst making levels as they understand 51 Anantnag, nine Pulwama, 108
affected by the conflict in Jammu about peace much better than Kathua, 22 Budgan, 89 Udhampur,
and Kashmir. anyone else,” she advocates, adding 66 Doda, 19 Poonch and 36 Rajouri.
that never before in the troubled For the first time in the history of
“Steps should be immediately
history of Jammu and Kashmir, the state women got at least some
taken to address this serous gap,”
have women come forward and say in decision making though these
is she says, suggesting women of contested elections, held after a civic polls.
Jammu and Kashmir should throw long gap of 27 years, even in the
their weight behind any initiative troubled Valley. If women can “Real progress towards gender
across the LoC that promotes come out in large numbers ignoring equality will be seen when women
better people to people interaction terrorist threats, why can’t they be have more say in the decisions that
rather than restricting themselves to included in the peace negotiations, affect their lives. Even though it
gender specific initiatives. ask Prof Jitendra. After all, nobody could be termed as beginning these
can understand the meaning of the elections gave an opportunity to
Women who have been working word “peace” better than a woman the Kashmiri women to express
at the grassroots level feel that who has lost her husband, son, newly found political impact,”
women’s equal participation brother and father in the past 17 says Professor Rekha Chowdhary,
in the political life, as voters, years. Department of Political Science,
Jammu University.
Till now, local woman associated
politics with fear and violence
saw them as synonymous, but
when some efforts where made
by the government to gvie them
opportunities to strengthen the
democracy at the grassroots
level, the women came forward
enthusiastically to contest the
Women who have been working at the grassroots level feel that women’s
polls.
equal participation in the political life, as voters, candidates and members
of electoral committees, could play a crucial role in the reconstruction of “Give them some space and see
violence-ridden society how their confidence can do wonders

38 YOJANA May 2008

besides inspiring other local women (WISCOMP), says that a peace Director Centre for Women
into political activism,” adds Prof process that excludes, more than Studies, University of Jammu.
Jitendra. half the population greatly risks Peace building attempts, in order
the possibility of keeping several to promote sustainable peace, need
Agreeing no less, Ms Seema creative solutions and options to address and transform structures
Khajooria Shekhar adds that out. which not only refer to the system
affirmative action for adequate of access and distribution of
representation of women in the “When we talk about a gender resources, but also social and
state legislature should be actively sensitive discourse on Kashmir, political institutions, situations and
encouraged. Jammu and Kashmir, we don’t mean to exclude males. relationships, she adds.
she argues, has a Constitution of It’s about building partnerships
its own and Article 370 will give it between men and women who In this process, she feels,
added leverage in doing so. What agree that if conflict affects them principles of democratic
the state requires is the political differently it’s only natural that participation, human rights and
will of the decision makers, who they may want to access the peace gender equality are crucial elements
are mostly men, for women’s process differently,” Dr Gupta for the longer term process of
equal participation in deciding the adds. building peace based on social
political and economic future of justice and equality for women.
Empowering women
Kashmir and a commitment at the would shape the path for (The author is a Special
governmental and administrative peace and reconciliation that Representative of The Statesman
level. would organically grow out of based in Jammu. This article was
Dr Sumona Das Gupta assistant participatory dialogue and lead to written for the Charkha-Sanjoy
director, Women in Security, peace and development of the state, Ghosh Media Fellowship she
Conflict Management and Peace opines Professor Poonam Dhawan, got for 2006-07) q

Essay Contest

Y
ojana in collaboration with Department of Consumer Affairs, Government of India is organizing
an essay competition on consumer awareness in Hindi and English.
The theme is ‘Unethical Food Marketing to Children’. The prizes are sponsored by Department
of Consumer Affairs.
(i) First Prize Rs.5,000/-
(ii) Second Prize Rs.3,000/-
(iii) Third Prize Rs.2,000/-
(iv) 10 Consolation prizes Rs.l,000/-
(v) Annual subscription of Yojana to 50 contestants including the above prize winners
The competition is open to all except officers/staff members and relatives of Yojana, Publications
Division, Ministry of Information & Broadcasting and Department of Consumer Affairs. Students and
civil service aspirants, especially women, are encouraged to participate. Entries can be sent through e-mail,
ordinary post/regd. post/speed post/courier. The words “Essay Contest” should be superscribed on the
envelope carrying the essay. The last date for receipt of entries in Yojana Office is 15th August 08. The
entries should be sent to:
By Post:
Editorial Office,
Yojana, Room No.538,
Yojana Bhavan,
Parliament Street,
New Delhi-110001
Through Email:
e-mail address: [email protected]

YOJANA May 2008 39

40 YOJANA May 2008
 do you know ?
what is polio?

B
y the year 2005, India was So a large number of people may Chronic Fatigue or Parkinson’s
to have become polio- have had a minor dose of polio later in life.
free. Three years down without really being aware of it.
There are twelve other viruses
the line, one of the country’s The more severe the original flu-
that are closely related to polio
most successful immunisation like illness, the more chance there
and can cause paralysis. If they
campaigns is struggling to meet is of deterioration occurring later in
had been discovered before polio
that goal. Not only old suspect life (fatigue & weakness).
vaccines stopped polio they would
areas but newer regions are What are the different strains of probably have been recorded as
reporting cases. Recently, Capital polio? other polio types. At present there
Delhi reported a case carrying the is no vaccine for the other types as
PV3 strain. Will India be able to Paralytic polio can be caused by
everything is geared at eliminating
eradicate polio? Are oral drops, any of three closely related strains
the three known polio strains. But
an effective and cheap weapon (serotypes) of poliovirus – PV1
people are still being paralysed by
against it? Or do we need to (poliovirus1), PV2 and PV3. PV1 is
these other strains, now called acute
switch to the more expensive the most virulent and produces the
flaccid paralysis.
and painful injectable option? most servere paralysis. According
Here is a search for these probing to the Union Ministry of Health and Is there a cure for polio?
questions. Family Welfare, one out of every
No, there is no cure for polio.
200 children in India is infected
What is polio? Polio can only be prevented by
with this virus.
immunisation. The oral polio
Poliomyelitis is a highly People with PV2 are often first vaccine (OPV) is a safe and effective
infectious disease caused by diagnosed as having meaningitis protection. Given multiple times, it
the polio virus. It invades the and may have gone into a coma, protects a child for life. As for fear
nervous system, and can cause but often the paralysis is less severe. of side-effects, OPV is one of the
paralysis or even death in a Those who have PV2 are more likely safest vaccines ever developed. It
matter of hours. to have had encephalitic polio and is so safe that it can be given to
How is polio transmitted? possible coma. Damage to the brain sick children and newborns. It is
can lead to poor memory, problems believed to have saved millions
The polio virus (scientifically in keeping awake or falling and of children around the world from
known as the wild poliovirus or staying asleep. PV2 is a weaker paralysis.
WPV) enters the body through virus and has been eradicated from
water or food that has been Is injectable vaccine an option?
India; the last case was reported
contaminated with faecal material from Aligarh in 1999. OPV helps in mass
from an infected person. The virus immunication in densely populated
multiplies in the intestine. From PV3 is more likely to be found
and unhygienic conditions. Using
blood it may pass to the nerves where there are reports of sporadic
OPV, all the countries in the
of the brain stem and spinal cord. cases, not in epidemics. The rate
world except India, Pakistan,
The disease mainly affects children of infection in PV3 is one in 1,000.
Afghanistan and Nigeria have
under five years. This strain had been confined to
eradicated polio.
western Uttar Pradesh for the past
Only humans can catch polio. two years but has now spread to But all polio-free countries over
The incubation period is three-five other districts of the state and also a period of time have switched over
days for minor illness and one-two Bihar. Those who have PV3 seem to IPV (injectable polio vaccine).
weeks for paralytic symptoms. to be more prone to developing Unlike OPV, IPV gives individual

YOJANA May 2008 41

protection to a child against all in areas that are densely populated launch of the global programme
polio viruses. Two years back the and with poor hygiene need higher in 1988, India had, on an average,
India Experts Advisory Group doses of OPV. two to four lakh cases every year,
suggested that the Government Given that every time a which has now been reduced to a
explore the possibility of using IPV polio case is reported there are a few hundred.
in high-risk districts of western UP flurry of accusations against the
to supplement OPV. But in a country How many new cases have been
immunisation drive, what needs to reported?
like India where wild virus is still in be realised is that until a child is
circulation, OPV is the best means fully immunised, he/she is still at This year, 281 cases of polio
to provide mass immunity. risk from polio. So it’s important have been reported, with Uttar
How many doses of OPV does a to immunise each child under five Pradesh leading with 223, followed
child need? during every round and ensure by Bihar 40, Andhra Pradesh
that all are given the vaccine at the 5, Uttarakhand 4, Haryana 3,
OPV needs to be administered same time. Maharashtra 2, and one each from
multiple times to be effective. The Gujarat, Rajasthan, Delhi and
number of doses it takes to immunise What is the track record of the
polio immunisation drive in Orissa. q
a child depends entirely on his/her
health and nutiritional status, and India?
(Source : Union Ministry of
how many other viruses the child The campaign has made Health and Family Welfare)
has been exposed to. Children living tremendous progress. Before the

Yojana
June ‘08
Next Issue
on
Climate Change
The Climate is Changing and the warmth of this planet is going beyond the tolerance level
day by day. It is the result of climate change and global warning.
Throwing light on the topic are eminent contributors:
- Nitin Desai, Deputy Secretary General of the Rio, Earth Summit and Secretary General
Johannesburg Summit.
- Shyam Saran, special envoy of PM on climate
- The issue also features on exclusive interview with R K Pachauri of TERI and Chairman,
Inter governmental Panel on climate change.

42 YOJANA May 2008

 News News nEWS nEWS
in the news
l The Supreme Court has upheld OBC quota in central educational institutions clearing the way for reservation
of 27% seats for “backward” castes over a period of three years from the academic year 2008-09. The
five member bench unanimously decided to keep the “creamy layer” out of the perview of the quota and
recommended review of the quota every five years.
l The Union Cabinet has approved the creation of farmers’ relief Fund with an initial release of Rs 10000 crore. This
paves the way for implementation of the 60000 crore loan waiver scheme announced in the Budget 2008-09.

Slew of Measures to rein in inflation

I n an attempt to rein in inflation,

the union government has
reduced the customs duty on
reduced from 15 per cent to zero per
cent under the Tariff Rate Quota for
five lakh tonnes.
The government has allowed
the export of castor oil, coconut
oil and oils made from minor
several crude edible oils to zero and The import of crude edible oils forest produce, excluding same
fixed the customs duty for refined at zero duty and refined edible oils oil. However, coconut oil will
edible oils at 7.5 per cent. at 7.5 per cent customs duty would only be exported from Kochi.
It banned the export of non- apply, among others, to palm, Mr. Chidambaram said the prices
basmati rice with immediate effect sunflower, soyabean, coconut and of steel and iron were discussed but
and set the minimum export price of groundnut oils. Hydrogenated a decision was deferred as Minister
basmati rice at $ 1200 a tonne. The for steel Ram Vilas Paswan was
ban on export of all pulses has been away. He advised steel producers
extended for a year from April 1. to “observe restraint.”
After a marathon three hour-long The order on removal of
meeting of the Cabinet Committee stock limits under the Essential
on Prices that was chaired by Commodities Act was kept in
Prime Minister Manmohan Singh, abeyance for edible oils, oilseeds
Finance Minister P. Chidambaram and rice, the minister said. He
announced a slew of measures to urged the States to implement
impact the rising prices. the order to prevent hoarding.
Beyond AAM Aadmi’s Reach
The inflation rate touched 6.68 inter-state movement and exports
per cent in the week ending on vegetable fats and oils can now have been excluded from this
28th March. be imported at 7.5 per cent duty. order. So far only six States
The customs duty on butter and However, the tariff values will have imposed stock limits. All
ghee has been reduced from 40 remain unchanged till further decisions would come into effect
to 30 per cent; the duty on maize orders. from Tuesday. q

Rural job scheme now in all Districts

At a total budget outlay of Rs. 16,000 crore
The National Rural Employment Guarantee Scheme (NREGS) has been extended to all 604 districts of the
country from Ist April.
At a Glance
3.10 Crore house-holds were geberated, Rs. 12,600 crore was the last
demanded employment in 2007- 27.04% was the job share of SCs, year’s budget for the scheme
08 and 3.08 crore of them got it STs stood at 30% and women’s Rs 16,000 crore is the initial
121.61 Crore person-days share was 42.13% budget outlay for 2008-09

YOJANA May 2008 43

 Cabinet okays sops for minorities, tribals
The Union Cabinet also approved of Prime Minister’s 15-point
Other Decisions
a slew of welfare measures programme for minorities.
for minority communities and < Transfer Rs 6,000 crore to
the Social and Infrastructure The CCEA also approved
tribal girls, besides allocating a
Development Fund this continuation of a dedicated
substantial amount to a dedicated
year. fund— Social and Infrastructure
fund to implement various social
< Allocate Rs 800 cr, Rs1100
Development Fund—beyond
and infrastructure development
cr, Rs 1100 cr and Rs 660 2007-08, to fund Government’s
schemes launched by it. The
respectively for remaining social sector initiatives, which
projects were cleared at a include upgradation of 1,396 ITIs,
meeting of Cabinet Committee years of 11th Plan for minority-
concentrated districts. Rs 120 training of farmers, employment
on Economic Affairs, chaired of physically challenged etc.
by Prime Minister Manmohan crore already allocated in
Singh. 2007-08 It also approved a revised scheme
< Allocate Rs 298.79 crore to ensure better education for
Topping the list is a centrally for tribal girls during 11th tribal girls in 54 districts. These
sponsored scheme — Multi- Plan. are districts with more than 25
sectoral Development Programme per cent tribal population whose
< Establish District Education
(MSDP). As per the programme, Support Agency to minimise female literacy is below 35 per
Rs 3,780 crore will be spend for the dropout of tribal girls cent. In fact, even blocks from
various development schemes from schools other districts but with above
in 90 minority concentrated characteristics would also be
districts in the country, during the separate schemes. covered under the scheme. The
Eleventh Plan. The scheme would However, the release of funds to assistance per girl student has
even allow funding for critical the state governments under the been increased from Rs 9,000 per
infrastructure projects like roads, scheme is conditional upon the annum to Rs 26,000 per annum
basic health facilities, ICDS respective state’s commitment to recurring expenditure. The scheme
centres, and skill development constitute state and district level will be launched from April
which are already funded through committees for the implementation this year. q

Pay bonanza for Central Staff

At a Glance l Number of grades reduced to 20 l High performers to get 3.5%
l Pay hiked by an average 40% against prevailing 35 increment against normal 2.5%
l To be effective from 1 Jan l Existing parity between IAS and l Enhanced pay scales for nurses,
2006 IFS to be maintained teachers and constabulary
l To cost exchequer Rs 12,560 cr l Defence forces at par with l Existing rates of most of the
in 2008-09 civilians in pay and grades allowances to be doubled
l One-time burden of Rs 18,060 l Rs 6,000 allowance a month for l Education allowance
cr towards arrears officers up to brigadier rank reimbursement at Rs 1,000
l Minimum entry level pay l 5-day work week to continue per child a month against
Rs 6,660 l Only three national holidays Rs 50 now
l Cabinet Secretary to get allowed l Hostel subsidy to be increased
Rs 90,000 l Other gazetted holidays to 10 times to Rs 3,000
l C u r r e n t a g e o f 6 0 f o r go, adjusted in restricted l Maximum salary at the level of
superannuation to be maintained holiday Secretary to be Rs 80,000 q

44 YOJANA May 2008

 Agni-I test-fired successfully

N uclear-capable surface-to-
surface missile Agni-I was
successfully test-fired on 23rd
path across the sky, climbed into
space and dived into the Bay of
Bengal, reaching a distance of 700
March from the Wheeler Island, km. Its re-entry system worked
off Damra village, on the coast flawlessly.
of Orissa. This is the fifth successful launch
A significant aspect of the test- of Agni-I, a product of the Defence
Research and Development
firing was that it was totally
Organisation.
executed by the Army, user of the
missile. This is the second time Avinash Chander, Mission
the Army is test firing the missile Director, said from the Wheeler
on its own. Island: “The launch went off
perfectly well and the performance
The missile soared majestically
at 10.15 a.m. from a road- of all systems has been exactly as
A Major Milestone :
mobile launcher, a huge truck, Agni-I blasting off from expected. The flight duration was
on the Integrated Test Range Wheeler Island, off the Orissa nine minutes, meeting all the
on the island. It cut a parabolic coast. mission objectives.” q

Readers’ Editor
Freedom of the press is important. So is its social responsibility, which must begin with interaction
with and accountability to readers. Yojana announces the appointment of Readers’ Editor in its 51 years
of glorious past.
The key objectives are to institutionalize the practice of accountability and transparency~ to create a
new visible framework to improve accuracy, verification, and standards to strengthen bonds between the
Yojana and its readers.
We intend to create new channels of communication with and greater responsiveness to readers and
to look for ways of improving the Yojana’ s work and performance through readers’ concerns, ideas, and
suggestions and ways to develop Yojana for the benefit of its readers and for itself. It will also be our
endeavour to correct significant errors pointed out by readers.
We wish to acknowledge that Yojana has been inspired by ‘The Hindu’ which in 2006 followed the
exemplary practice and experience of ‘The Guardian’, U.K. The office of Readers’ Editor can be contacted
by
Telephone: 011-23717910, 011-23096666 Extn. 2508
(office working hours from Monday to Friday)
e-mail : [email protected]
Postal Readers’ Editor, Room No.506, Yojana Bhavan,
Address New Delhi-ll000l
Our esteemed readers are requested to use this facility and give suggestions to enrich Yojana. All
communications shall carry the full postal address, telephone no. and e-mail address.

YOJANA May 2008 45

1857 1947 2007

Azizun - The Enigmatic

Courtesan of Cawnpore
Tripurari Sharma

O
n 26th May 1765 the along with thirteen dancers are image and give it space in the self
East India Company mentioned. to move on, explore and create
troops had put the new possibilities. Such a woman
Maratha army to fight The authorities were concerned probably was Azizuneesa , the
and set up camps on about the well being of the soldier popular courtesan, whose memory
h e i g h t s o f J a j m a r, and yet were bound by their
to date is cherished by the people of
overlooking the Ganges… few limitations of the situation and its
the city that now gets by the name
miles down from the hamlet of implications. “I believe a great deal
of Kanpur.
Kankapura” This was to consolidate of unhealthiness (among soldiers)
into a strategic cantonment because arises from their being unmarried. According to most versions,
of its proximity to Bithur where There can be no question that Azizun was born in Lucknow –
the Marathas were stationed (and marriage opposes a barrier to the daughter of a courtesan. She
where the future and famous Rani immorality of a certain nature……” was trained as a singer and dancer,
But this solution had to be seen as besides being a poetess of repute.
Jhansi was born and brought up)
“simply a matter of finance…..The While the courtesan exiled outside
and Lucknow (where Hazrat Mahal,
condition of the public revenue the circumference of domesticity,
a Begum of Oudh was to create
will long probably ever forbid the she had a reacquired place in
history). In less than a hundred
spectacle of a standing army of society. The British who were the
years, this area was destined not
married men, either in England or outsiders were themselves intrigued
only to feel the presence and power
India” – Prichard Administration. by this institution. As the courtesan
of British might but also dissent
against this very power resulting in So the woman. The native existed outside the domain of
an upheaval of such magnitude that woman had an entry. She was marriage they termed them as
its reverberations can be sensed in permitted a place in this male women of easy nature, but could
the memory, psyche and culture of world where she existed at the not help noticing the respect and
this region. periphery, almost nondescript, status that they received according
shadowy and two dimensional. to custom. In a letter, P. Canneige,
The name Kanhapur gradually Clearly such a perception could Deputy Commissioner, Lucknow
lost its relevance as the area gained not define her and when in 1857 writes, ‘The only women on the tax
identity as Cawnpore, an urban the opportunity came, she stepped register in their own right were the
centre, market and access point to out and from the shadows to claim prostitutes classified as “dancing
Calcutta via the Ganges and hence the space that the times had the girls”. Prostitution is not a ‘lawful
to the sea and the world beyond. potential for. It was an act of trade’ but in Oudh we cannot be
According to the 1849 census of defiance – an act of transformation bound by regulation while by
Cawnpore, 6,628 persons were and of transcendence, almost like custom and by oriental consent this
occupied in trade and professions. moving out of one self to another trade is held in estimation not only
Amongst bankers, carpet makers, – destroying the self as if it were as not unlawful, but as a highly
cotton spinners, dyers, physicians an image so as to imbibe another respectable one and why therefore
The author is Professor in National School of Drama, New Delhi. She has also directed a play on the life of Azizun.

46 YOJANA May 2008

should this, the most profitable of gain from the Company’s coffers. in Azizun’s case also. Even if it
all trades in Lucknow not be taxed? Yet these two were the ones to rise were not so, she had enough reason
When others which we hold in in revolt and confront the source to defy a system that belittled her
much higher estimation are….” of their own benefit. The paradox very existence and treated it with
appears to simplify itself when contempt.
Oudh, then was steeped in the the list of soldiers grievances is
colourful world created by Wajid Ali examined. Reasons like a demand As Azizun’s base became a centre
Shah. Dance was a metaphor for life in the salary, allowances, facilities of political activity and conspiracy,
and many courtesans were accorded and promotions are apparent, but she was noticed, observed and spied
a status of wife when he wedded what they were to bound to lose up. Nanak Chand of Cawnpore
them by the norms of custom. For was much more than what they who spent his time in the D.M’s
a women of Azizun’s caliber, there sought to gain. While the loyalty of anterooms, elaborates Azizun’s
was enough scope for acquiring the solider was with the Company, movements in detail in his diary.
wealth and fame in Lucknow. his own identity as a native probably Nanak Chand’s diary has not been
However, she decided to move had intense dimension within his treated as a serious source by many
to Cawnpore and set up her own own self. The famines, the heavy western historians and some have
base. It seems that she preferred the taxation, the emergence of courts discredited it as being exaggeration.
lanes of a crowded upcoming town and consequent litigation posed But he was not the only one to spy
to the sophisticated and luxurious questions that he could not answer on Azizun. Deposition of Kunhye
corridors of Lucknow. or even understand, but was bound Pershad, Mahajan of Cawnpore
to defend – and in the process justify states: “I knew that many of the
But such was her choice. Many troopers frequented the house
critics feel that the woman who what he may not be in agreement
with. It was a moral dilemma – of a prostitute named Assessun
participated in the upheaval of (Azizun) and bought over her
1857 did it out of compulsion as a moment in history when the
conscience had to be heard. Those servant Emambux (Imam Baksh).
they were bound by allegiance to She informed me that Sawars of
men who were their husbands or who mutinied and those who did
not – each had a decision to make the 2nd Cavalry were plotting with
masters and happened to be active Nana and that a meeting had taken
participants in the revolt. This and no way was easy. Brothers
fought brothers and friends became place between the parties.”
cannot be said for Azizun who was
a woman unaccosted and not bound foes overnight. By being with the The deposition further states,
to any man by the laws of a formal Company, the soldiers fulfilled the “Nana’s men meddled with the
contract. moral obligation of being dutiful. Sawars of 2nd Cavalry specially
By a protest, he could mark his Sheeba Singh and Shamsaadeen
Once in the city of soldiers, disassociation with the power of the Khan” and goes on to recollect
Azizun came into close contact oppressor and hence shake off the the day “when the latter was at her
with them. A courtesan’s house hatred that had been his share and house. Being in liquor he told the
by its very nature was accessible retrieve the respect and honour that girl that the Peshwa’s reign would
to men by all walks who could he so desired from his own people. soon commence and the Nana in a
assemble there without arousing The same cartridges were used to day or two would be paramount and
suspicion. Men from the army, retain the lost pride of a man bought that he would fill her house with
Nana Saheb’s courtiers from Bithur, over by outsiders. gold mohurs.”
the chieftains from villages, dealers,
bankers could come and go at all The courtesan, too could not have This statement of Shamsudin
times as part of a normal routine been free of this dilemma. Added to has been quoted in the depositions
phenomena. It was probably here it must have been the humiliation of several people. It created a furore
that Shamsudin Sewar of the 42nd and injustice received from an in the small frightened city in the
cavalry frequented her and it is administration that incurred her as summer of 1857. Maids carried it
possible that she imbibed much a “prostitute” and not an artist – a as murmurs to the British quarters
of the soldiers dilemma through performer and poetess of sensitivity where it found mention in some
this close proximity.. The dancer and excellence. There are narratives diaries as well. That this one line
in the city was amongst the few of women performers abused when spoken in Azizun’s house has been
who were able to break out of the they went to the British quarters for verified by many witnesses speaks
feudal bonds of royal servitude and the evening “mujra”. According of the seriousness of the remark. It
set up an independent base. Both to some people , some such event also fortifies to the extent her privacy
were upwardly mobile and stood to could have triggered off the revolt was encroached upon. And in these

YOJANA May 2008 47

circumstances a conversation of were captured by the Indian troops According to Thomas
such a nature between two people were kept in Bibighar under the Mowbray, Azizun was captured at
becomes an art of daring. The witty surveillance of Hussaini Begum, Etawah and brought to Cawnpore.
Azizun, however, denied having one of the courtesans connected A.S. Misra adds that “she was
had anything to do with such an with Baji Rao and part of Nana arrested by General Havelock
incident. Saheb’s household. When the who promised to save her life but
British army came to recapture only if she relented. But the brave
The people of Kanpur remember Cawnpore, strategy planned
her as a woman in a soldier’s Azeezun declined. And as the
by Tantiya Tope did not work bullets of the firing squad pierced
costume moving through the lanes and defeat of Nana Saheb was
of Kanpur on horseback. Keeping her body she remembered …and
imminent. Fear and frustration cried “Nana Sahib Ki Jai!”. It took
vigil. The image has been treasured at the turn of events led to the
by legend passed on orally from long for this region to resolve
massacre of the British women the trauma of the events that
generation to generation – a woman and children. One of the persons
warrior, a symbol of might and shattered the fabric of life, culture
responsible for this act was Sarnar, and peace. Amongst the remedial
courage.. What brought her here? who was described in a Deposition
Ghalib, the poet did not feel the need measures that were taken there
as a “ barrack boy”, son of a was regulation which affected
by proving himself a warrior. Why Pathan prostitute who had been
then Azizun? Was it an opportune the survival of the kothas of the
associated with the 87th Royal courtesans. They were subjected
moment for her to transcend her Irish regiment. The intriguing
limits as a woman? Was it the lure to humiliation clubbed with
and unanswered question is had
of the outside or the opposite? She brothels and the interference of
Azizun anything to say or do with
was not a queen fighting for the the state through policing tactics
this incident? Many people wonder
throne or kingdom – a woman, now if Hussaini and Azizun were the was regularized. They paved the
a plain soldier, devoid of frills and same person. However, it is clear way for the gradual decline and
delicacy, aiming for strength in the from several sources the Hussaini eventual demise of an institution
brutal field of death and destruction. was a different person. that was an inherent part of the
“Azeezun chose to make one of culture of the region.
the gun batteries her headquarters. Hussaini was often in
This was the battery to the north of the service of Adila, another “On the 6th December 1857”,
wheeler’s entrenchment between courtesan connected with Bithur wrote William Forbes Mitchell,
the racket court and the chapel of and who was a favourite of Nana “I advanced across the canal with
Ease, it fired shot and shell into Saheb. The incident at Bibighar Thirty Six, well served heavy
the entrenchment, almost from the challenges us to reflect on history rebel guns pouring shot and shell
first day of the siege and must have and derive different realizations through our ranks. On the 19th
killed many.” to touch the layer of darkness August 1892, I stood on the top of
within all of us. Could, if anything the Cawnpore Woolen Mills and
There are references of Azeezun else be different? Azizun have counted 36 chimneys ..belching
being seen in places close to where prevented this? Had she a voice smoke from more than three times
Nana resided in Cawnpore, while the in the decision making? If asked that number of steam boilers…”
revolt was in progress. Christopher would she have kept quiet in order And Lee mentions that the tourists
Hisbert mentions that “The Nana to prove herself no less a man than find it “very interesting to watch the
established himself in the gallery of other men in a man’s world? Can Indian children with their parents
the court and the surrounding area a different voice be made or heard working in the mills on English
became a great favourite. Most of when the “them” and “us” divide principles.” The engines rolled in
Muslim troops and of Cawnpore’s categorises and defines people. Kanpur with a vengeance. And yet
most celebrated courtesan, Azizun, Would an empowered woman beneath this sound, the whispers
who could often be seen there within the frame of modern day of a legend continued to float
entertaining her admirers and governance be able to make a
providing them with milk etc. on and drifting, settling in corners
greater difference? Probably yes, of people’s memory, but keeping
the public road.” because a woman’s vision has it alive – not allowing the name
The Indian side initially more space and acknowledgement of Azizun to slip into anonymity,
triumphed in Cawnpore as the than there was a hundred and fifty keeping it in remembrance as the
British were forced to leave the years ago. We must ask. We must courtesan much beloved by her
city. Women and children who learn. Not necessarily if nag. people. q

48 YOJANA May 2008

Budget 08-09 Analysis

Rural Development

Ishita G Tripathy
K K Tripathy

T
he run-up to Union of Defence (Figure 1), amongst
Budget 2008-09 was replete the social sector ministries, this
with media expectations allocation is the highest. The present
of it addressing concerns Budget’s outlay per head for people
like increasing rural below poverty line in rural areas
infrastructure, revamping agriculture works out to Rs. 2,137. This is in
and reviving allied and non-farm addition to the Rs. 6,183 that is
activities. Rightly so, because, the allocated per Indian citizen (which/
most recent estimates of Planning includes the rural poor as well).
Commission show that the incidence
While the share of the country’s
of rural poverty on the Head Count population living on agriculture
Ratio declined from 37.3 in 1993- and allied activities continues to
94 to 28.3% in 2004-05, a reduction be more than 60%, the contribution
of 9 percentage points over 11 years of agriculture to GDP has been
The emphasis (Table 1). declining (24% in 2001-02 to 17.5%
in 2007-08). In this backdrop, the
of the Further, this year’s budget has
stressed on rural India as reflected commitment of Budget 2008-09
to rural employment has been
Budget on in various allocations. The budget
provision (plan and non-plan), a positive move. Further, rural
employment has been given the
social sectors net of receipts and recoveries,
largest share of 30.5% within the
for this sector, particularly of
is aimed at Ministry of Rural Development and
total allocation for rural sector,
followed by rural roads and bridges
Ministry of Panchayati Raj, is 6.3%
ensuring (Rs. 47,211 crore) of the total
(15%) and rural housing (10%)
(Table 2). “
budgetary provision for 2008-09.
inclusive While the allocation of the rural The proposed expansion of
sector is the third highest after National Rural Employment
growth Ministry of Finance and Ministry Guarantee Act (NREGA,) to the
The authors belong to Indian Economic Service.

YOJANA May 2008 49

 Table 1 demand. The legal right
Percentage of Population Below Poverty Line, under NREGA which
India (1973-74–2004-05) ensures at least 100 days’
S. No. Year Rural Urban Combined
1 2 3 4 5
wage employment marked a
1 1973-74 56.4 49.0 54.9 paradigm shift from the wage
2 1977-78 53.1 45.2 51.3 employment programmes.
3 1983-84 45.7 40.8 44.5 Yet, it is not free from
4 1987-88 39.1 38.2 38.9
implementation problems at
5 1993-94 37.3 32.4 36.0
6 1999-00 27.1 23.6 26.1 the ground level. The desired
7 2004-05* 28.3 25.7 27.5 level of success of NREGA,
8 2004-05** 21.8 21.7 21.8 depends on strengthening of
Note : *As per Uniform Recall Period.
** As per Mixed Recall Period.
the existing implementation
and monitoring mechanism Swarozgar Yojana (SGSY) will
Source : Planning Commission, Gol (2007)
while also ensuring financial and now have an outlay of Rs. 2,150
remaining 266 districts indicates operational sustainability. With crore. This is an increase of
its popularity as well as potential greater co-ordination at block/taluka 19% over that of the previous
to improve the lives of poor and level, towards resolving issues year (Rs. 1,800 crore). SGSY,
the vulnerable. Apparently the like promoting the involvement launched in 1999, is based on a
implementation agencies would of Panchayati Raj Institutions and holistic approach covering various
draw from the lessons in the first converging the benefits of NREG aspects of self-employment.
phase of implementation. Programme with various other i.e., organisation of the poor
ongoing rural development-oriented into self-help groups (SHGs);
The central outlay in BE 2008-09, capacity building; provisioning
for NREGA, has been increased by programmes would yield durable
benefit in the context of poverty market infrastructure, credit and
33% over that previous budget outlay subsidy linkage; and technology
to Rs. 16,000 crore. The budget, alleviation, gainful employment
upgradation. However, studies
prima facie, signals continued strong generation and social security.
point to various shortcomings
growth stimulus with the expansion Next, in the context of self coming in the way of effective
of NREGA, providing consumption employment, Swarnjayanti Gram implementation that reduces the
impact of SGSY. These are mainly
Table 2:
related to coordination amongst
Total Outlay for Ministry of Rural Development and Ministry of Panchayati Raj (BE)
field level agencies, the appropriate
(Rs. Crore)
selection of economic activities,
Components 2006-07 2007-08 2008-09 % increase % increase of marketing, technology and brand
of 2007-08 2008-09 over
over 2006-07 2007-08 development and the promotion
1 2 3 4 5 6
of quality SHGs. Therefore, in
order to derive value for money
Total Plan & Non-Plan 35,269 41,330 42,711 17.2 3.3
Outlay for M/Rural invested into this programme the
Development & activities should be selected after
M/Panchyati Raj
careful assessment of viability of
Of which the output and also have intense
Rural Employment 12,870 13,320 14,400 3.5 8.1 forward and backward linkages.
(36.5) (32.2) (30.5)
The rural housing programme,
Rural Housing 2,625 3,636 4,859 38.5 33.6
known as Indira Awas Yojana (IAY),
(7.4) (8.8) (10.3) has an allocation of Rs. 5,400 crore
Roads & Bridges 4,853 6,110 7,075 25.9 15.8 during 2008-09. This is an increase
(13.8) (14.8) (15.0) of 34% over that of the previous
Note : Figures in parentheses indicate percentage to total outlay year. At the unit level subsidy
Source : Various Budget Documents, M/o Finance
has been enhanced by 40% each

50 YOJANA May 2008

in plain areas (from Rs.25,000 to connectivity, not only creates more in: i) reducing drop-out rates
Rs.35,000) and in hill/difficult areas opportunities for inclusive growth and increasing retention rates; ii)
(from Rs.27,500 to Rs.38,500). but also generating demand for accelerating learning outcomes, and
Besides, the public sector banks cement etc. through backward iii) ensuring sustainable funding
were urged to include IAY houses linkages. mechanism at both Central and
under the differential rate of interest State levels. In this sector, the focus
Besides, other sectors which
scheme. Consequently, Rs.20,000 of the Budget has been to actualise
have a significant impact on rural
per unit can be lent to the client the vision of ‘Health for All’, the
development are: (i) rural water
beneficiary at an interest rate of NRHM and full coverage of rural
supply and sanitation, (ii) rural
4%. An across the board 20% unorganised workers is a must,
education, (iii) rural health and
enhancement of the subsidy for especially taking into account the
(iv) rural electrification. The
upgrading the house may not fact that the major source of financing
total allocation of programmes
satisfactorily address issues relating health care is the household (Figure
dealing with these sectors, viz.
to costs due to price variations 2). The increased allocation and the
Rajiv Gandhi Drinking Water
in hilly and plain areas. The key proposed universalisation of ICDS
M i s s i o n ( R G D W M ) , To t a l
to successful lmplementation are expected to effectively address
Sanitation Campaign (TSC), Sarva
is including bonafide targeted the twin problems of maternal and
Shiksha Abhiyan (SSA), National
beneficiaries. One way to approach infant mortality. Besides, proposals
Rural Health Mission (NRHM),
this problem could be through a of the Budget regarding the initiation
Integrated Child Development
comprehensive social audit. of a National Health Insurance
Scheme and Rajiv Gandhi Grameen
The Bharat Nirman programme Vidyutikaran have been enhanced Scheme for Unorganised sector
which was implemented in 2005- by 26% over the previous year’s workers living below the poverty
06 for addressing infrastructure budget to Rs. 44,250 crore. line and a National Programme
and basic amenities need in rural for the Elderly are welcome steps.
The allocation of RGDWM and The much-needed emphasis of the
areas has six components of rural
TSC have been enhanced by 12.3% Government on rural electrification
housing, irrigation, drinking water,
to Rs. 7 ,300 crore and by 13% to continues so as to enable rural
rural roads, rural electrification
Rs.l,200 crore, respectively, for India to reach its full growth
and rural telephone connectivity.
Budget outlay for 2008-09 for potential.
this programme has been hiked by The emphasis of the Budget
27.13 % to Rs. 31,280 crore. Further, on social sectors is aimed at
the corpus of Rural Infrastructure ensuring inclusive growth. In
Development Fund (RIDF), which this context, the Budget entails
channels bank funds for financing doubling of agricultural credit
rural infrastructure, is proposed flow, providing employment
to be raised to Rs. 14,000 crore. to the needy, empowering
To achieve the targets of Bharat t h e p o o r, b r i n g i n g m o r e
Nirman, 1,46,185 kms of road 2008-09. National Family Health children under the purview
length is proposed to be constructed Survey-3 (2005-06) indicates that of formal education, improving
by 2009 which will benefit 66,802 the proportion of people who have rural healthcare and engendering
unconnected habitations in the at least 12 years of education ranges developmental initiatives. While
country. The allocation of Pradhan between 5% and 8%. Rightly outlays are provided by the central
Mantri Gram Sadak Yojana has then, the stress of the Budget on government, outcomes are decided
been increased by 16% to Rs. 7,530 education is well-placed. Besides by the performance of State
crore during 2008-09. A seperate higher and technical education,
Governments, which are required
window under RIDF-XIV for rural the Government has emphasised
to ensure inclusive growth. q
roads with a corpus of Rs. 4,000 on SSA. To fulfil the objectives
has been proposed. An improved of SSA, intervention is required (Email : [email protected])

YOJANA May 2008 51

 book review
Poverty and Child Labour

T
he twin issues of child Child labour is widely seen as a
labour and children’s right manifestation of poverty and the child’s
to education have become economic contribution to the household
key issues in development economy. Therefore, they are seen
debates internationally and as vital to meeting the basic needs
have also become a matter of the poor family. Thus there is a
of genuine concern globally. broad relationship between poverty and
These issues viz., children’s needs and children which is reinforced as well
welfare now occupy prominence as a as offset by the economic and social
central issue all over the world in global differentiation of the poor. Factors like
debates. The adoption of the United caste, religion, ethnicity and gender
Nation’s Convention on the Rights of act in conjunction with poverty as
the Child (CRC), has set a higher rate of well as independently of it, to explain
ratification by the nations of the world the variations in the incidence of child
than any other convention, which marks labour as well as absence or irregular
a new global awareness of the importance presence in the educational system. The
of this problem. While the adoption of poor are also economically differentiated
a rights based framework provides the by the security of their livelihoods.
basis for recognizing wide range of While many poor people can, and do,
deprivations in relation to children, it send their children to school when the
also draws attention to the enormity and right facilities are in place, the same is
complexity of the challenges ahead. less true of the poorest. As a result, a
disproportionate percentage of the child
The problems of child labour and labour and out-of-school children are
poor educational achievements have drawn from households characterized
assumed central importance in social by irregular savings and lack of assets,
policy discussions in present world savings or access to credit.
scenario. There are acknowledged The book has been written in a
problems in quantifying both phenomena conventional manner dealing with
because estimates of child labour tend various policies and measurers relating
to overlook activities in which children to the education of this huge reservoir
are disproportionately ‘represented, of child labour in developing countries.
while gross enrolment takes no account It provides an in-depth information on
of dropouts, failures to complete and this aspect citing empirical evidences
absenteeism. Nevertheless, there is no from South Asia. But the language used
doubt about the sheer magnitude of is quite difficult to grasp and understand
tITLE : Child labour and both problems in South Asian region. and thus cannot be read at a stretch. It
the right to Education in UNICEF (1999) calculations suggest does not comprise of any graphics such
South Asia that South Asia alone accounts for nearly as tables and diagrams and some relevant
50 percent of the estimated 130 million pictures which could have made it more
children with no access to basic education enthralling and interesting for the readers
Author : Naila Kabeer, Geetha
in the developing countries. Girls make of any field. Thus it cannot be read by
B. Nambissan and common man for gaining an insight into
Ramya Subramaniam- up around two of every three of these
this serious problem. It will be mostly of
Pages : 412 children. It also accounts for largest use for professionals, social scientists,
Price : Rs. 365/- number of children out of schools. Thus activists, policy makers etc who are
a large number of educational models involved in delivering education to such
for addressing the requirements of these children who are outside the formal
Publisher : Sage Publications, children who are outside the conventional schooling system.
New Delhi. schooling system, has also been evolved
in this region. – Abha Agarwal

52 YOJANA May 2008