WELFARE OF BACKWARD CLASSES
ALTHOUGH large numbers of persons live on the margin, the description "backward classes" is commonly applied to the following four sections of the population:
(1) scheduled tribes who number about 19 million;
(2) scheduled castes who number about 51 million;
(3) communities formerly described as 'criminal tribes' who number a little over 4 million;
(4) other socially and educationally backward classes who may be declared as such by the Central Government in the light of recommendations made by the Backward Classes Commission.
In the first five year plan programmes were undertaken for meeting the special needs of these four sections of the population. Of the total provision in the plan of about Rs. 39 crores, Rs. 20 crores were allocated in the plans of States and the balance was provided at the Centre. About Rs. 25 crores were earmarked for the development of scheduled tribes and scheduled areas, Rs. 7 crores for scheduled castes, Rs. 3.5 crores for former criminal tribes and Rs. 3.5 crores for other backward classes.
2. Each group has special problems. These are reviewed below with reference to programmes undertaken during the first five year plan and those proposed for the second plan. The second plan allocates a total amount of about Rs. 91 crores for the welfare of backward classes, of which Rs. 47 crores are for scheduled tribes and scheduled areas, Rs. 27.5 crores for scheduled castes, about Rs. 4 crores for former criminal tribes, Rs. 9.7 crores for other backward classes and Rs. 2.9 crores for administration etc. These amounts are intended for programmes which are- specially designed to assist back- ward classes. They are therefore supplementary to measures of development in each State which are pursued in the interests of the population as a whole. To the extent the economy develops, backward classes also benefit. In the administration of development programmes care has to be taken to ensure that schemes are so formulated that the weaker sections of the population are aided in the largest possible measure. While this is an aspect to be followed as closely as possible, only in some fields of development is it possible to show separately what proportion of the outlay is incurred for the direct benefit of disadvantaged sections. The special provisions made in favour of backward classes should be so utilised as to enable them to derive the maximum advantage from general development programmes and to make up as speedily as possible for retarded progress in the past. Departments concerned with the welfare of backward classes in States should make special efforts to get all the other development Departments to consider ways by which their programmes can produce marked impact on the welfare of backward classes. They should utilise the resources available to them so that the general and special programmes operated in a manner complementary to one another. For each section of the backward classes priorities should be carefully worked out It is also necessary to emphasise that the benefits which backward classes may realise will be in direct proportion to the effectiveness of implementation and to the integrity, efficiency and the attitudes of staff working in the field.
TRIBAL WELFARE PROGRAMMES 3. Welfare programmes for tribal people have to be based on respect and understanding of their culture and traditions and an appreciation of the social, psychological and economic problems with Which they are faced. The welfare and development programmes in tribal areas inevitably involve a measure of disturbance in relation to traditional beliefs and practices. In their implementation, therefore, the confidence of the people and, in particular, the, understanding and goodwill of the elders of tribal communities are of the highest importance. It is therefore, necessary that welfare extension workers of all kinds should be found as far as possible from amongst the educated youth in tribal communities. In commending the adoption of new techniques tribal leadership should have a major role and any suggestion of imposition from without should be avoided, and for each step the ground should be carefully prepared in advance. The anthropologist, the administrator, the specialist and the social worker have to work together as a team, approaching the problems of the tribal people with
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sympathy, understanding and knowledge of the social psychology and needs of tribal communities. Tribal people have to be assisted largely through their own institutions. Details of development programmes should be formulated in consultation with members of advisory councils, leaders of tribal opinion and institutes engaged in the study of tribal problems. The tribal people should feel that these programmes are, in a real sense, a response to their own urge for better standards of living and the development of their culture. If the programmes are implemented with popular support, they will give the tribal people in all parts of the country a sense of partnership and integration with the nation as a whole.
4. Such an approach to tribal problems can be given effect to only through trained personnel and through close study of tribal needs and problems. With this in view, during the first five year plan, tribal institutes have been set up in eight States. Training institutes for field workers have been established in Madhya Pradesh and Bihar. In some States special surveys of the needs of tribal areas are now being organised. During the first plan an attempt has also been made to associate voluntary organizations with work in tribal areas. The Central Government have given grants to ten all- India organizations and nearly 200 local institutions have been aided by State Governments.
5. Development programmes in tribal areas may be broadly grouped under four heads-(a) communications, (b) education and culture, (c) development of tribal economy, and (d) health, housing and water supply. During the first plan about Rs. 6 crores were spent on developing roads in tribal areas in Assam and other States. Bridle and hill paths to the extent of 2,340 miles were constructed in a number of States, including Assam, Bihar, Orissa, Madhya Pradesh, Andhra and Vindhya Pradesh.
6. Considerable importance must be attached to the education of tribal people. An important step in this direction has been the training, in Hyderabad and elsewhere, of an increasing number of tribals as teachers. To facilitate teaching through tribal dialects, special text books have been prepared in Hyderabad, Assam, NEFA and Bihar. So far eight tribal dialects have been taken up in this manner. Assistance has been given through scholarships, grants for books, hostel fees and other ways to tribal students. Over 4,50,000 tribal students were in receipt of assistance. By the end of the first plan about 4000 schools will have been established in tribal areas of different kinds. This includes more than one thousand Ashram and Sevashrm schools which have been established in tribal areas, specially in Bombay, Bihar, Orissa and Madhya Pradesh and about 650 sanskarkendras, balwadis, community centres etc. in the States of Bombay, Bihar, Madhya Bharat and Rajasthan. The establishment of Ashram schools in tribal areas in all' States will be one of the principal education programmes for the second plan.
7. The reconstruction of tribal economies presents a number of challenging problems and it is essential that solutions should be based on a close study of social, economic and technical aspects. Among the more significant of these is the question of shifting cultivation and its replacement by settled agriculture. In Bombay, Hyderabad, Bihar and Madhya Bharat the bulk of the tribal people are already practising settled agriculture and the question is, in the main, one of improving agricultural methods and assisting the tribal people to increase their production. On the other hand, in Assam, Madhya Pradesh, Orissa and Andhra a large proportion of the tribal population is engaged in shifting cultivation. Shifting cultivation is associated necessarily with marginal living standards. Apart from customs and traditions connected with shifting cultivation, a number of obstacles in its replacement relate to availability of suitable land for agriculture and the cost entailed in its development and settlement.
8. In a number of States, small-scale experiments have been carried out for evolving improved methods on shifting cultivation and for establishing settled agricultural colonies. In Assam since 1954, 9 demonstration centres have been set up, 3 in the Garo Hills districts, 3 in Mikir Hills, 2 in Mizo district and one in the North Cachar Hills district At these centres improved patterns of land utilisation are demonstrated to tribal people. These involve afforestation of hill tops and slopes with wattle plantation, cultivation of coffee, cashewnut along the slopes and soil conservation measures. In Andhra, in the East and West Godavari districts, colonisation schemes have been undertaken, Pilot schemes have also been introduced in Bastar and other tribal districts in Madhya Pradesh. In Orissa over 2000 tribal families have been settled in 69 agricultural colonies which have been so far established.
9. Although the problem of replacing shifting cultivation needs to be studied further, from the work which has already been done certain broad conclusions appear to emerge. Provided the necessary conditions are created there may be no great unwillingness on the part of the tribal people to give up shifting cultivation. These conditions are (i) provision of fertile and, where possible, of irrigated land, (ii) assistance by way of bullocks, implements, seeds, finance, etc., and (iii) steps to ensure that moneylenders and merchants are not permitted to exploit the tribal people. Further, experiments suggest that steep slopes and the upper regions of hills should be permanently afforested. On the lower slopes, jhuming might be practised without damage if measures are
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taken to preserve the fertility of the soil. At lower levels and on gentles lopes terrace cultivation may be undertaken. The various gradations of shifting and settled cultivation which may be possible in an area will depend largely on the nature of the soil and the practical alternatives open to the tribal people. Where jhuming continues to be practised care should be taken to avoid indiscriminate cutting down of forests and adequate intervals between the cultivation on the same land should be provided for. Apart from various facilities and technical and financial assistance, education has a large role to play in improving methods of cultivation in tribal areas. Adaptations of existing practices are necessarily a long term process and quick results are not to be expected, but it is important that for each tribal area a careful programme suited to local conditions should be worked out and followed through in cooperation with local tribes.
10. A considerable proportion of the tribal people live in forest areas, so that the manner in which forest resources are exploited has a great deal of bearing on their welfare. Care has to be taken to ensure that regulations relating to the collection of forest produce, grazing, meeting everyday requirements for firewood, etc;, do not cause hardship. In many ways, the penetration of forest contractors into the tribal economy has been harmful. During the first five year plan 653 forest labour cooperative have been established and, where necessary assistance and guidance has been given, they have generally succeeded. Increasingly, in tribal areas forest contracts should be given to co-operative societies and they should also be assisted in the collection and processing of minor forest produce. Where cooperatives are established special care to ensure integrity on the part of officials is of the utmost importance.
11. A problem which causes concern in tribal area is that of indebtedness. The creditors, who are commonly money-lenders, merchants or contractors, sometimes acquire a strangle-hold over tribesmen and take away a large proportion of the current produce. We suggest a closer study of this problem with a view to assessing how large and widespread it is in actual fact, and also taking suitable measures to eliminate past debts and provide for supply of easy credit in the future. It should be added that in a number of States some relief by way of reduction on accumulated debts has already been given and laws have been enacted for protecting the rights of tribal communities in lands occupied by them. During the first five year plan 312 multi-purpose co-operative societies were established in tribal areas and in Orissa, Bihar and Madhya Pradesh 350 grain golas set up by the Government are now functioning as grainbanks. The economic life of the tribal people and their customs are specially adapted to successful organisation on co-operative and community lines. Tribal co-operatives should, as far as possible, be multipurpose in character, providing for credit, supply of consumer goods and marketing at the same time. The principle of co-operation has application in almost every field of economic life.
12. During the first five year plan 111 cottage industry centres have been established in tribal areas. Tribesmen have considerable inherited skill and it is essential that their arts and crafts should receive encouragement and support and they should be given facilities for vocational training. There are large number of subsidiary industries such as bee-keeping, basket-making, sericulture, spinning and weaving, fruit preservation and the manufacture of palm-gur which can be developed. Peripatetic demonstration-cum-training parties have been found useful in Bombay and elsewhere.
13. Although tribesmen live close to nature, invariably their health and physique are poor. They suffer from various diseases such as malaria, yaws, tuberculosis, small pox, and venereal diseases and skin and eye diseases. In the main, to a large extent these are due to lack of clean drinking water, nutritive food, and of protection against extremes of climate. At the end of the first plan, 3144 dispensaries and mobile health units have been established in tribal areas. Assistance for constructing drinking water wells has also been given on a considerable scale. Health surveys have been initiated in some States with a view to studying the general condition of health among tribal people and the methods and practices generally adopted by them for healing. A difficulty encountered in carrying out this service is the inaccessibility of tribal populations who frequently live in the interior of forests. To the extent communications are available, experience suggests that mobile medical units are specially suited to tribal areas. The centres at which considerable numbers of tribals are living together are few and far between so that dispensaries of the usual kind have to be supplemented by other means.
14. In the chapter on Community Development and National Exten- sion reference has been made to the manner in which the National Extension Movement is to be worked in tribal areas so as to co- ordinate fully with the welfare programmes described in this chapter. In tribal areas national extension service blocks will be demarcated on the basis of an average population of about 25,000 instead of about 60,000 adopted elsewhere. In the most backward tribal areas it is proposed to undertake about 40 multi-purpose pilot projects in which, along with national extension activities, additional programmes will be integrated. The advantage in taking up these latter programmes in national extension areas is that the trained personnel available there can be utilised to the best advantage. In the pilot projects all aspects of tribal life will be taken up at the same time, such as, encouragement of settled forms of
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agriculture in place of shifting cultivation, improvement of agriculture, provision of medical and public health services, improvement of communications, development of arts and crafts, organisation of cooperatives 'and the establishment of community welfare centres. Community welfare centres have not yet been established in tribal areas on any large scale. This is an item of activity which should receive much greater attention during the second five year plan. Such centres are a valuable method for developing local participation and leadership and are specially suited for associating the best type of local workers as well as others from more advanced areas.
15. For the second five year plan an amount of about Rs. 47 crores has been earmarked for programmes of tribal welfare compared to about Rs. 25 crores in the first five year plan. Since the general development programmes in the second plan are also larger in scope, the two sets of programmes together should go far to stimulate development in tribal areas. Broadly, programmes in the second plan follow the lines of those adopted in the first plan, in the course of which useful experience in promoting different activities has been obtained and the personnel of tribal welfare departments have gained closer knowledge of tribal conditions and problems. Out of Rs. 47 crores, a little over Rs. 27 crores are provided in the plans of States (which include the element of Central assistance), and about Rs. 20 crores in the programme of the Ministry of Home Affairs for schemes sponsored by the Central Government. The total outlay on tribal welfare programmes is proposed to be distributed as follows:-
(Rs crores)
Communications....... 11
Development of tribal economy ......... 12
Education and culture............. 8
Public Health, Medical and Water Supply.... 8
Housing and Rehabilitation................. 5
Others . . . . . . . 3
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16. Programmes in the States.- In the State plans priority has been given to the development of communication for which Rs. 6.5 crores have been earmarked. It is proposed to construct 10,200 miles of bridle and hill paths and 450 bridges. States have also provided for the development of about 36,600 acres of land, regeneration of 6,570 acres of forest lands, distribution of agricultural implements and pedigree bulls, training of about 4,000 persons in various crafts and the establishment of 82S cottage industries centres. In its plan, Assam has provided for 670 stipends for giving vocational training to tribal students. 45 training-cum-production centres have been included in orissa's second plan and 87 industrial and technical training centres for tribal students have been provided in the remaining States. For developing settled agriculture, 186 colonies comprising more than 12,000 families are to be set up. About 350 grain golas, which were established during the first five year plan are to be turned into full-fledged cooperatives and 800 additional forest multi- purpose cooperative societies are to be established. In Andhra, the State Government have created a special agency for providing hillmen with credit facilities to purchase their produce at reasonable rates and for supplying their requirements at market rates.