21. It is not possible for many voluntary organisations in the country to employ highly trained personnel for their ordinary programmes and activities. It is, therefore, necessary to arrange for training at the community level for field workers, instructors and supervisors. The existing schools of social work, specialised social service agencies, social welfare agencies functioning at the national and State level should provide opportunities for such training. Arrangements for 'in-service' training should also be made by the larger voluntary organisations; which have worked in the field of social welfare for many years. Further, arrangements have
SOCIAL WELFARE 619
to be made for the training of voluntary workers who will be needed in large numbers during the coming years. It is especially desirable that voluntary administrative and field personnel should be given some elementary training in social work.
22. The emergence of State social services and of large central organisations to deal with important social problems and the lack opportunities for higher training in the social sciences within the country indicate the need in selected cases for training and study abroad in specialised fields. It is necessary that persons who go abroad for training should first have sufficient knowledge and experience of Indian conditions and problems.
SOCIAL RESEARCH 23. Scientific research into social problems and fields of social work is at present limited to a few universities and the schools of social work. A provision of Rs. 50 lakhs has been made in the plan for research and investigations relating to social, economic and administrative problems of national development. Research studies now undertaken are not adequate or extensive enough for the purpose of getting a comprehensive knowledge of basic social problems. It is necessary to stress the need for ensuring that research personnel receive adequate training in methods and techniques. Secondly, it is important that the results of any research that is carried out should be made available to the public. The appropriate machinery for guiding research in the fields mentioned above is at present under consideration. In the field of social research, it will be necessary to give a broad direction concerning the subjects on which research should be undertaken, carry out some important research projects, directly co-ordinate the work of research agencies in so far as this may be necessary, and assist these agencies in improving the quality of their work and bringing the results of research to the attention of the public. Universities, schools of social work, social welfare agencies and special research organisations can co-operate in research projects and in field investigations which could be of practical value in dealing with social problems. Assistance could also be given by way of literature and equipment needed for field research.
RESOURCES 24. The total resources of the country being limited, it is essential to nsure that funds available for social welfare programmes on the part of State agencies as well as voluntary organisations are put to the best possible use. This is a problem to which the proposed social welfare board could give detailed attention. While State may assist suitable voluntary agencies, the principle of self-help should be applied to social welfare, and the resources needed should, as far as possible, be obtained from the local communities. Social services are organised to carry out specific welfare activities. The total resources required by social service agencies in the country are obtained from State grants, income from endowments, public collections and income from special activities and from membership fees. Due to the
620 THE FIRST FIVE YEAR PLAN
prevailing economic conditions in the country, it is sometimes true that the public response is not as effective as it should be if the various organisations were to carry out their programmes efficiently. The appeal to the public is likely to yield greater results if care is taken to observe some elementary conditions such as the following:-
(1) the right methods for collection of funds are adopted,
(1) definite programmes of activities stating the manner in which funds are to be utilised by an agency are placed before the public., together with a psychological appeal,
(3) the effort of collection is well-organised,
(4) the appeal is addressed to as wide a section of the community as possible. Full use should be made of various modes of publicity and the public should feel that the cause is one worth supporting, and
(5) correct reports and accounts are provided and the public convinced of the integrity and the bona-fides of the organisations and the organisers concerned.
25. Funds available with endowments and trusts may be an important method of supplementing resources which the State and private agencies can provide. We, therefore, recommend enquiries by States into this subject which may offer a basis for legislation concerning the use for approved purposes of funds held by endowments and trusts.
SOCIAL LEGISLATION 26. One of the important methods of bringing about progressive social change is social legislation. A good deal of legislation of basic importance has been enacted during recent years. The existing legislation needs to be scrutinised more intensively, especially with a view to finding out to what extent it serves the present social and economic objectives of the nation and to ascertain how far it can deal adequately with current social problems. Some machinery is needed for reviewing existing legislation and suggesting possible modifications, and if necessary, the repeal of obsolete laws in order that all existing legislation may be brought into conformity with the requirements of the Constitution. Social legislation has at times to be punitive in order to protect society from anti-social elements; but wherever possible, the legislation should be preventive and protective, and where it deals with the offender, its approach should be to rehabilitate the individual after eradicating the contributory factors to anti-social conduct.
27. Social legislation cannot by itself deal with social problems in an effective manner unless it is backed by the force of public opinion. Social legislation has also suffered owing to incomplete enforcement. This is especially due to lack of adequate machinery for enforcement, and also because of insufficient resources and personnel both with public and private agencies. Social legislation can be better enforced by associating social service agencies with
SOCIAL WELFARE 621
agencies set up by the State. As regional communities become organised for social action, voluntary co-operation of the community based on enlightened understanding will go a long way in facilitating the enforcement of the law.
28. A critical survey of the prevailing legislation will suggest how far the legislative provisions are inadequate, to what extent enforcement must be strengthened and the directions in which new legislation is needed. The proposed social welfare board or social research organisation, or any other appropriate agency may undertake a comprehensive- survey to study the problem of social legislation. Legislation relating to the prevention of child marriages and the prevention of immoral traffic, certain housing and public health laws, laws affecting tribal areas and communities as also certain criminal laws constitute examples of social legislation which needs to be revised in the light of the existing needs and conditions. Among the laws which have to be enforced more effectively than they are at present are those relating to offences on the part of children, prevention of beggary and the control of prostitution. New legislation is required for the effective operation of social services in various fields. The registration of social service agencies with a view to inspection and sanction of grants-in-aid is one of the primary needs.
WOMEN'S WELFARE 29. In order that the woman may be allowed to fulfil her legitimate role in the family and the community, adequate services need to be promoted for her welfare. The position and functions of the woman differ to a great extent in different communities, and, therefore, community welfare agencies will have to workout their programmes and activities according to the specific requirments of the areas in which they work.
Important problems relating to the status and rights of woman have to be dealt with by legislation. Special organisations on the part of the Central or State Governments for promoting the welfare of women have not yet been developed to any great extent. Well-organised social service departments are needed in the States if they are to initiate more comprehensive programmes of woman and child welfare and achieve better co-ordination between the efforts of public and private agencies. The major burden of organising activities for the benefit of the vast female population has to be borne by private agencies which have already done considerable work for the promotion of women's welfare. The All-India Women's Conference has 37 branches and about 300 'sub-branches' in the country. The National Council of Women in India has 12 major branches, and the Girl Guides Association, the National Y.W.C.A., the Association for Moral and Social Hygiene, and the Trained Nurses Association in India, are affiliated to it. The Kasturba Gandhi National Memorial Trust does extensive work for the welfare of women and children in rural areas and has representatives to carry out activities in eighteen States. There are numerous small organisations all over
622 THE FIRST FIVE YEAR PLAN
the country which have done valuable work for women. These organisations provide dispensaries and maternity centres, homes for destitute children and shelter homes for women. They also organise programmes for education, recreation and training in handicrafts.
30. Organised efforts are needed to stimulate activities at the community level, both in rural and urban areas. This should be done by community centres, social education agencies, and agencies working for the welfare of under-employed groups, by organising groups of women who could come together for activities such as recreation, education, arts and crafts, and co-operative participation in social and economic activities of the whole country. Groups could also be organised as " mothers' clubs or unions " in all ante-natal and post- natal clinics, milk centres, co-operatives, and as a part of trade union activities. Such groups could especially be organised in slum areas and backward areas and amongst working women and women of backward classes in general. A large number of voluntary workers will be required for such groups, and these could be recruited by women's welfare organisations. Girl guides and girl students in high schools and universities could assist in these activities as part of, a programme organised on a national basis. The existing women's organisations in the country could be strengthened if their membership and activities are extended, and if they organise programmes for creating women's organisations in towns and in the larger villages. Such local organisations need trained workers, guidance and assistance which could be given by leading women's organisations through travelling workers, training camps, instructional manuals, and other literature.
31. For various reasons the available statistics on commercial vice are limited and unreliable. India is a signatory to the international agreement for the suppression of traffic in persons and of prostitution which was reached in 1950. However, clandestine prostitution and even brothels continue to- exist in the country together with tolerated areas in some of the cities. Clandestine prostitution exists in many forms and the danger of the evil is augmented when the woman is not assured economic security by the family or the community, or when she is psychologically maladjusted in terms of her sexual and material desires, or when her economic activities do not permit a normal family life. This kind of prostitution is further promoted by activities of persons who organise traffic in women and children. Immoral trafficking sometimes takes place as between backward and poor rural areas on the one hand, and the more prosperous urban areas on the other. Inter-provincial trafficking is also not unknown.
32. Certain social evils are products of inherent maladjustments in the social order and their complete eradication needs basic social adjustments. It is realised that such adjustments are only possible when social justice is more effective, there are reduced opportunities for concentration of wealth, exploitation is eradicated, economic conditions are improved, and social morality is established by well- adjusted patterns of common behaviour at the basic community level. The following measures are suggested for dealing with the problem :
SOCIAL WELFARE 623
(1) an advisory committee should be set up by the Central Government to make proposals and review progress in respect of law and policy in different States relating to the prevention and treatment of social vice ;
(2) enforcement of the law should be more effectively carried out ; measures to enforce the law may include, wherever necessary, the creation of a separate vigilance branch within the police force ;
(3) whenever it is found difficult to eradicate the tolerated areas, adequate arrangements should be made for medical assistance and facilities for the treatment of venereal diseases ;
(4) wherever it is found that clandestine prostitution is in existence, efforts should be made to eradicate soliciting ;
(5) institutions for the protection, care, shelter and rehabilitation of fallen women do not exist in sufficient number, and cases of neglect are frequent. There is a need for more institutions organised by local self-governing bodies and private social service agencies and provision for regulation, inspection and control of homes which should be under the management of trained personnel. Such homes should provide shelter, medical aid and assistance for marriage ; and
(6) there is a need to strengthen existing specialised and private agencies like the vigilance associations and societies for the preventions of traffic in women.
CHILD WELFARE 33. The child, being always dependent, has to be provided for by its parents and the family, the community and-the State. Considering the size of the-population involved and the nature and complexity of the problem, the total responsibility of welfare has to be borne cumulatively by the family, the regional community, and the State at three different levels. The problem of survival and the high incidence of infant mortality and birthrate has been dealt with in the chapter on Health. The problem of education is dealt with likewise in another chapter. However, certain aspects of the problem of health, growth and care of the child need the attention of social welfare, agencies.
34. In a country where poverty is extensive, there is need to supplement the diet of children. Effective ways have to be devised by the State and private agencies to see that the necessary nourishment is received at least by under-nourished children in schools and in established institutions. To augment State resources, an effort should be made by each local community to assist educational institutions and child welfare organisations in supplementing the diet of the child in some way. At present, skimmed milk powder, cases of baby foods, semolina, vitamin tablets, pabulum cereals, codliver oil, etc., are received as gifts from various sources. Efforts to organise collections in kind at the community level could be supplemented by grants-in-aid from charity trusts and local self-governing bodies. It is desirable that State organisations, the Red Cross, the Indian Council of Child Welfare and
624 THE FIRST FIVE YEAR PLAN
other important national and State organisations for child welfare should co-ordinate their efforts both for the collection and distribution of supplementary foods for children. The five most suitable agencies for the distribution of free foods to children at the community level are (1) milk centres (2) maternity and child welfare centres (3) community centres (4) day nurseries and schools, and (5) play centres.
35. Feeble-mindedness-The attention of the educational authorities is naturally concentrated in the early stages on formal education. The problem of feeblemindedness is gradually beginning to receive the attention of psychologists and educationists in the country. Uptil now there are no adequate institutions in the country for the care and treatment of feeble-minded children. A beginning has been made in dealing with this problem by the Society for the care, treatment, and training of children in need of special care. A few pilot projects in selected areas could be developed by specialised agencies for child welfare. One of the major handicaps in this respect is the absence of a sufficient number of trained psychologists and psychiatrists and teachers specially trained to (teal with mentally backward children. Provision should be made for training personnel as early as possible.
36. Child guidance clinics-The first child guidance clinic was organised in India in 1936. Since then a small number of child guidance clinics have been brought into existence in some of the larger cities. It is desirable that at least one child guidance clinic should be brought into existence in every State and, wherever possible, such clinics should be organised by municipalities. The Organisation of this important service is also likely to be handicapped due to want of psychiatrists and child psychologists. It is essential to train a number of psychologists and case, workers in the schools of social work in order to provide trained personnel for dealing with problem children.
37. Greches-An important service which has already made considerable headway in India for the welfare of children is the Organisation of creches, day nurseries and other types of pre-schools. In large factories in major cities, already a number of creches are organised with a reasonable standard of efficiency in the interest for children whose mothers work in the factories. In 1951, Bombay had 177 creches with about 3,000 children, Madras had 93 with about 2,334 children, Bihar had 26 with 796 children, Madhya Pradesh had 16 with 360 children and Uttar Pradesh had 7 with 126 children. These figures reveal that only a very small percentage of children of working mothers take advantage of these creches, specially because it is the tradition in India for children to be looked after by other women members of the family. As it is now compulsory under the Factories Act of 1948 to provide a creche in factories employing 250 or more women special efforts may be made by factory owners to induce mothers to send their children to the creches.