 REPORT OF THE SOCIAL SERVICE AND
 PUBLIC ADMINISTRATION COMMITTEE
 OF THE CENTRAL ADVISORY BOARD OF
 EDUCATION, 1940.

At the fifth annual meeting held in May 1940, the Central Advisory Board of Education considered a communication from Sir Francis Younghusband, Secretary of the Indian Village Welfare Association, Westminster, London, regarding the establishment of a centre or centres in India for study in social service and public administration. As the Board felt that this important problem required thorough investigation, they appointed a Committee to examine the various issues arising in connection with it and to submit a report. The following were appointed members of the Committee which was given power to co-opt:-

1. The Hon'ble Sir Maurice Gwyer, K.C.B., K.C.S.I., Chief Justice of India. Chairman.

2. Sir V. T. Krishnamachari, K.C.I.E., Dewan of Baroda.

3. The Right Rev. G. D. Barne, C.I.E., O.B.E., V.D., Bishop of Lahore.

4. Rajkumari Amrit Kaur.

5. Dr. R. C. Mazumdar, Ph.D., Vice-Chancellor, Dacca University.

6. Dr. A.. F. Rahman, LL.D., B.A. (Oxon.), Member, Federal Public Service Commission.

7. Lala Shri Ram.

8. The Educational Commissioner with the Government of India.

2. In accordance with the powers conferred on the Committee, the following were co-opted as additional members:-

1. Dr. T. E. Gregory, D.Sc., Economic Adviser to the Government of India.

2. Dr. Clifford Manahardt, A.M., D.B., Ph.D., D.D., Director, The Sir Dorabji Tata Graduate School of Social Work, Byculla, Bombay.

3. Mr. R. P. Masani, M.A., J.P., Vice-Chancellor, Bombay University.

3. The Committee, as finally constituted, met in New Delhi on the 15th and 16th November 1940. Sir V. T. Krishnamachari, Rajkumari Amrit Kaur and Dr. Gregory were unable to attend the meeting. Dr. D. M. Sen, M.A., Ph.D., Secretary, Central Advisory Board of Education, was Secretary of the Committee.

4. The agenda and the connected papers circulated to the members are set out in the Annexure.

5. In opening the proceedings, the Chairman observed that the memorandum circulated with the agenda indicated most of the points which the Committee were called upon to consider. The first question they had to decide was whether the establishment of a centre or centres was desirable and if so whether it could be regarded as practicable within a reasonable

110

period. After that general point had been settled the Committee would proceed to define the functions of such a centre or centres, the scope of the subjects to be studied or investigations conducted and the necessary organisation which would be involved.

As a preliminary to their discussion, the Committee asked Dr. Manshardt as Director of The Sir Dorabji Tata Graduate School of Social Work, which is a pioneer institution in this sphere so far as India is, concerned, to describe the work which was being done under his guidance. Dr. Manshardt explained in detail the organisation and activities of the Tata School.

6. The Committee felt that as they were required to consider the social services in their relation to public administration rather than public administration so far as it was concerned with social service, their investigation must embrace the activities of voluntary agencies as well as the work of public bodies and government departments. The means of correlation between these two might indeed form the primary subject for exploration and in this connection the experience of European countries and of America might be usefully studied. On the other hand a country so vast in extent as India, with such varying climatic and economic conditions and with so complicated a social structure must present problems which can only be tackled in the light of original research. The Committee, therefore, envisaged the need for a central institution at which the main issues arising in connection with social welfare in the widest sense might receive impartial and scientific examination. The principal function of such an institution would be to study social problems rather than to train social workers but emphasis was laid on the fact that if its researches were to be practical and its influence far-reaching it must be staffed by people with as wide an experience as possible of social service in a concrete form. It was to be expected that the staff and student of such a central institution would be drawn from workers in provincial centres, whether voluntary or professional, and would in due course return to practical work. It would thus be at one and the same time a clearing house of information and ideas, a research bureau, and a kind of staff college for senior social welfare officers. The Committee had before them the constitution and programme of the American Public Welfare Association and felt that these with such modifications as might be needed to meet Indian conditions might be a useful guide in determining the more detailed functions of the institution they have in mind. In order, however, that the institution might be at all times in close touch with practical problems and have some place where actual experiments could be carried out it would be extremely desirable that there should be closely associated with it, if not tinder the same direction, a training school for social workers. Possibly the social welfare centre which a place of the size and importance of Delhi might be expected to support would serve this object.

7. The Committee recognised that a central institution of the kind outlined above could only be justified if its work were supplemented by and closely linked with that of provincial social service centres directly in contact with local problems. The Committee were glad to note that in addition to the Tata School there are a number of voluntary agencies already engaged in this field, such as the Institute of Rural Reconstruction at Santiniketan, the Co- operative Institute at Gosaba as well as the social service centres run by the Ramkrishna Mission and numerous other

111

missionary agencies. In addition to voluntary effort, Governments, whether Central, Provincial or State, are devoting increasing attention to the social services and this tendency may be expected to develop rapidly in the near future. There is therefore a promising nucleus of varied activities, the main need of which is consistent stimulus and effective organisation. To provide this a number of provincial centres are required, whose principal object would be to correlate the activities of all social service agencies in their areas. The proposed central institution in its turn would act as a focus for the provincial centres.

8. The Committee do not wish to do more than indicate in the broadest outline the function which in their opinion these provincial centres should fulfil. In order to ensure effective correlation it is important that their management should represent as fully as possible the various organisations at work in the area. In addition to this it will be their business to conduct propaganda and to train or arrange for the training of social service workers. The field to be covered is so large that it is unlikely that any one provincial centre will possess the necessary facilities for training workers in all branches of social welfare. Full use must therefore be made for training purposes of other suitable centres in the area. Similarly in the case of the workers themselves the call for service is so great that there is no possibility of satisfying it solely by means of full-time professionals. A nucleus of these will be essential. in every area and their selection and training will be matters of the first importance but they will, have to be reinforced by a much larger army of part-time and voluntary workers. The provision of courses for them will be an essential feature of any successful provincial organisation. In particular the Committee felt that it would be extremely desirable that departments of Government which deal with the social services should take steps to see that their officers receive similar training either during their period of probation or subsequently. Teachers and Health officers in particular should be made aware of the wider aspects of a movement with which their own activities are intimately connected. It is an obvious truism that progress in social welfare must very largely depend on a sympathetic attitude on the part of those occupying positions of administrative responsibility.

9. The Committee also considered what direct contribution Universities might be expected to make in this sphere. While they did not regard as practicable the suggestion recently put forward that some personal participation in social service should be made a condition of the award of a degree, they felt that Universities might render help of considerable value both by enlarging the scope of their extra-mural departments and by encouraging students to regard social service as the discharge of an obligation towards the less fortunate sections of the community. The Committee recognised the part played by Universities in the Literacy Movement and were glad to learn that some Universities were already actively interesting themselves in the establishment of University settlements and other forms of social work.

10. In considering the general lines which training for social service should follow the Committee had in mind the fact that the problems of social work in rural areas are distinct from those in cities and that in planning courses a different method of approach would be required in each case. Apart from the need to establish training centres in rural areas as well as towns it is not less essential to ensure that the students in the former are people with a real knowledge of and interest in rural life.

112

11. The Committee next considered the nature of the machinery which would be required to give effect to the ideas set out in the foregoing paragraphs.

As has already been indicated, they envisaged the need of an All- India body with a central institution under its control at which the main problems could be studied. In addition to research it would be the business of the central body and the central institution to establish and maintain contact with provincial centres which would in turn stimulate and coordinate social service activities in their own areas. The Committee felt it was outside their terms of reference to consider in any detail what form or forms of organisation should be adopted so far as provincial or other local areas are concerned. No useful purpose would in any case be served by attempting to prescribe a uniform system. Provided that overlapping and waste of effort are avoided, this is a subject above all others where local conditions must be taken into account and freedom to experiment encouraged.

12. The central body, which might be called the All-India Council of Social Service, and would, as its name indicates, be representative of the whole country, should not in the Committee's opinion be under the direct control of Government. Since, however, it is not reasonable to anticipate that funds sufficient to make it self- supporting will be forthcoming from private benefactions, as in the case of the Association of Public Welfare Administration endowed by the Rockefeller Foundation, and that consequently it will have to depend at any rate in its early stages largely on assistance from Government funds, some public representation will be necessary.

Without wishing to define too rigidly the composition of the Central Council the Committee felt that it should contain a Chairman and 6 members (of whom at least 2 should be women) nominated by Government, one representative of each Province and 2 representatives of Universities nominated by the Inter-University Board. Provision might be- made for the representation of those Indian States which are actively interested in this subject through the Government nominees. This would mean a council of about 20 and it was thought that provided the members were persons of influence, carefully selected for their interest in and practical experience of social problems, it should be large enough for its purpose.

13. The Central Research Institute, which would be managed by the Central Council and should be located in Delhi. should have three main departments devoted to the study of Economic, Public Health and Education problems respectively.

In view of the character of the work which it will undertake and in the interests of economy the staff of the Institute need not be a large one. Quality rather than quantity should be the determining factor. The Committee were in agreement that in order to preserve the vitality of the Institute, the Director and Heads of Departments should not be encouraged to remain there indefinitely. Their appointments should be on contract for such a period, e.g., five or seven years, as would enable them to make their influence felt throughout the country as well as to complete any important piece of research which they might be required to undertake. The Institute would also need a Registrar and a Statistician; these might be permanent appointments. The Registrar would act as Secretary to the Council.

113

14. in conclusion the Committee have felt it desirable to put forward some estimate of the cost of their proposals together with suggestions as to the source or sources from which it might be met. As the success of the scheme will depend to a very great extent on the personality and ability of the Director of the proposed Central Research Institute the Committee consider It necessary to offer a salary that will attract the best men available. As the appointment is to be for a period of 5-7 years and will not be pensionable, the Committee are of opinion that the salary should not be less than Rs. 1,500 per mensem.

It should be possible to obtain men of the requisite calibre as Heads the three proposed departments for Rs. 500-700 each per mensem and -750 per mensem should cover the combined salaries of the Registrar -atistician. Generous allowance should also be made for stipends -cage of research workers of outstanding ability who would otherwise -able to support themselves at the Institute. The Committee do not -sider that in the beginning at any rate it would be necessary to incur - serious non-recurring expenditure in connection with this scheme as it - be possible to hire accommodation in Delhi that would house - tely an Institution of the modest size contemplated. When the rent - and normal maintenance charges, including clerical Staff are - the salaries suggested above it would appear that between -00 and Rs. 1 lakh would be needed to meet the annual recurring

-Committee hope that if the scheme succeeds and by its success att- increased attention to the importance of social welfare work in the interest, of the community at large, it will in due course receive a growing measure of financial support both from public bodies and from private benefactors. They also take it for granted that the proposed All-India Council of Social Service and the staff of the Institute will make every effort to build up an endowment fund which will ultimately place the Institute on a self-supporting basis. At the start however they realise that the bulk if not, the whole of the expenditure involved will have to be met from public funds and they regard the contribution which this project might make to the general well-being of India as so great that they have no hesitation in recommending the Central Government to accept the whole responsibility for an initial period of 5 years,

MAIN CONCLUSIONS AND RECOMMENDATIONS.

I. (a) That there should be established in India, preferably at Delhi, a centre in which an impartial and thorough examination of the problems connected with the Social Services and Public Administration in its relation to the Social Services, could be carried out.

(b) That for this purpose a central body, to be called the All- India Council of Social Service, should be set up with an Institute for research under its control.

(c) In order that the institution might be at all times in close touch with practical problems and have some place where actual experiments could be carried out it would be extremely desirable' that there should be closely associated with it, if not under the same direction, a training school for social workers.

114

II. That in each province and other large administrative area there should be at least one centre affiliated with the All-India Council the main object of which would be to stimulate and coordinate the work of social service agencies, voluntary and offical, in the area and to arrange for the training of social workers of all grades.

III. That training in social work should be given to the officials of public departments concerned with the social services as well as to the workers of voluntary bodies.

IV. That every University in India should have a department for extramural work in charge of an officer who his had a, thorough training in Social Service.

V. That as most of the India's population is in the rural -- corresponding importance should be attached to training for ser -rural areas persons with a real knowledge of and interest in country --

VI. That the composition of the proposed All-India Council of So -Service and the staff of the proposed Central Institute and their remun-tion should be as set out in paragraphs 11-14 of the report.

VII. That the annual recurring cost of the Central Institute est -at between Rs. 75,000 and Rs. 1,00,000 should be borne by the -ment of India for an initial period of 5 years.

VIII. That every effort should be made to build up an end -fund which would make the Central Institute self-supporting v -reasonable period.

(SD.) MAURICE GWYER (CHAIRMAN)

G. D. BARNE.

R. C. MAZUMDAR.

A. F. RAHMAN.

SHRI RAM.

JOHN SARGENT.

CLIFFORD MANSHARDT.*

R. P. MASANI.

* Subject to note of dissent.

115

NOTE OF DISSENT BY DR. CLIFFORD MANSHARDT

I approve of the report except for the first paragraph in Section 13 on page 4. It is quite right that the Committee decided that the Research Institute should have three main departments devoted to the study of Economic Public Health and Educational problems respectively. I personally, however, do not feel that this division represents in an adequate manner the functions of a Social Research Institute. I feel that the Institute could more profitably devote its attention to:-

(a) A study of the problems connected with Family and Child Welfare.

(b) Economic problems: industrial and Agricultural.

(c) Social Pathology-problems arising out of maladjustments between the individual and the social structure, which covers the range of problems such as poverty, unemployment, ill-health, mental deficiency, crime, problems arising out of physical defects, etc. H 2

116

ANNEXURE.

(a) AGENDA FOR THE MEETING OF THE COMMITTEE APPOINTED BY THE CENTRAL ADVISORY BOARD OF EDUCATION TO EXAMINE THE QUESTION OF ESTABLISHING A CENTRE IN INDIA FOR THE STUDY OF SOCIAL SERVICE AND PUBLIC ADMINISTRATION IN THIS COUNTRY.

1. To consider whether a centre or centres should be established in India in which an impartial and thorough examination of the problems concerned with the social services and public administration in this country could be carried out and by means of which courses of training could be arranged for those engaged or about to be engaged in this work.

2. To consider the desirability of restricting the number of centres to be established and of concentrating attention in the first instance on a single centre which might be established in Delhi.

3. To consider the constitution of the actual organising agency and to what extent it should be representative of the Governments or universities concerned and of appropriate private associations.

4. To consider the question of the incidence of the cost of the scheme, i.e, whether the Government of India and the provinces, which are likely to benefit, should bear in due proportion the cost involved.

5. To consider any other matter connected with the subject that may be brought before the meeting.

(b) MEMORANDUM PLACED BEFORE THE CENTRAL ADVISORY BOARD OF EDUCATION IN INDIA AT ITS MEETING HELD IN MAY 1940, REGARDING THE ESTABLISHMENT OF A CENTRE FOR STUDY TN SOCIAL SERVICE AND PUBLIC ADMINISTRATION.

In February 1937, Sir Francis Younghusband, Chairman of the Indian Village Welfare Association, Westminster, forwarded, on behalf of his Association, a draft scheme for the establishment of a centre in India, for study in social service and public administration and requested the Government of India-

(a) to place the scheme before the Central Advisory Board of Education in India; and

(b) if the Board commends the scheme, to assist in carrying out the project.

A copy of his letter together with the draft scheme is appended for the information of the Board. The main proposals are:-

(i) That a Centre or centres should be established in India in which an impartial and thorough examination of the problems concerned with the social services could be carried out and by means of which courses of training could be arranged for those engaged, or about to be engaged, in this work in its many aspects;

(ii) That though the centres might be under the aegis of a university or universities, the actual organising agency should be representative concerned and of appropriate private associations; of the Government, of the university or universities

(iii) That there should not be more than 3 social service centres and in the first instance attention should be concentrated on a single centre which might be established in Delhi; and

117

(iv) That the Government of India and the Provinces, which are likely to benefit, should bear in due proportion the cost of the scheme.

2. The Adult Education Committee of the Central Advisory Board of Education, which met in July 1939, also suggested that social science should be taught in all universities and that it should be treated from the practical point of view and not academically; for instance, no student should be eligible for a degree or diploma unless be had satisfactorily completed an allotted task as a social worker.

3. Training in social service and public administration for those who wish to qualify themselves for the nation-building tasks is undoubtedly not only desirable but also essential. At present, there is no centre in India where such a training is imparted.

4. The matter is placed before the Central Advisory Board of Education for their consideration.

COPY OF A LETTER, DATED THE 17TH FEBRUARY, 1937, FROM THE CHAIRMAN OF THE INDIAN VILLAGE WELFARE ASSOCIATION, WESTMINSTER, TO THE SECRETARY TO THE GOVERNMENT OF INDIA, DEPARTMENT OF EDUCATION, HEALTH AND LANDS.

I am hopeful that the activities of the Indian Village Welfare Association, of which I have had the privilege of being Chairman since the date of its inception in 1931, have already been brought to the notice of the Government of India.

The objects of the Association are briefly-

(a) the collection and dissemination of information regarding rural activities in India;

(b) the furtherance of schemes and experiments for the promotion of rural welfare; and

2. I would draw attention to certain measures which the Association, in spite of its limited resources, has attempted to carry out by disseminating valuable information and by its educational activities.

In the former direction, I would refer to the leaflets which have been broadcasted in India on the subject of Child marriage; and, in particular, to a small pamphlet "Rural Welfare in India", by Mr. C. P. Strickland, which has been widely distributed in India and other countries. I have reason to hope that these and other publications of the Association have proved of value to the progress of rural reform.

In the latter direction, I would refer to the Eastern School, which is organised every year by the Association, and is attended by I. C. S. probationers and by others engaged in, or intending to engage in, rural work in India. The Association has been successful in enlisting the co-operation of men admirably qualified to afford stimulating advice, based upon long experience, to those who may be expected to take a leading part, in rural activities in the future.

3. I hasten to add that, in these and other activities, the Association has worked in the closest co-operation with successive Secretaries of State and High Commissioners for India, and I gladly take this opportunity of

118

recording the gratitude of myself and of the Association for the sympathy and help which have been given ungrudgingly from these quarters.

4 During the last year, many members of the Association and others interested in our work from varying aspects, discussed with me informally and from time to time the possible extension of these activities and, in particular, whether something on the lines which we have been attempting in England could not be developed in India.

I therefore invited members of the Association, together with others connected with similar Associations, to attend a meeting held at the Caxton Hall on October 15th, 1936, with Sir George Anderson in the Chair. A wide and influential response was given to my invitation; and the discussion at the meeting indicated a very widespread appreciation of the urgent need for promoting wider and more practical facilities for study and training in the problems of public administration in India, especially in relation to the social services.

5. General unanimity having thus been established, it was decided that a representation should be sent to the Government of India on the subject, in which the general principles of this development should be defined. It was also felt that, though it might be inadvisable to go into detail and to recommend a definite scheme, it was none the less advisable to provide a clear -indication of what was in the minds of those attending the meeting if only as a suggestion of the kind of work which might be attempted. A Committee was therefore appointed to prepare an outline of a scheme in accordance with the general sense of the meeting. I myself attended the final meeting of this Committee, as also did Mr. F. W. H. Smith of the India Office.

6. The report of the Committee was presented to a further general meeting, which I summoned on February 9th, 1937.

7. A unanimous desire of the meeting was expressed that I should address the Government of India in the terms of this letter and that I should make the request that this important matter should be placed before the Central Advisory Board of Education. Such procedure appeared to the meeting to be appropriate in that, it is understood, the Board includes representatives not only of provincial governments but also of Indian universities and of the Central Legislature.

8. I myself concur wholeheartedly with the opinions strongly expressed at both meetings that, especially in, view of the new Constitution which is shortly to be put into operation in India and of the increasing and welcome importance now attached to the task of rural reform and to social problems, a Centre, or Centres should be established in India, in which an impartial and thorough examination of problems concerned with the social services could be carried out and by means of which courses of training could be arranged for those engaged, or about to be engaged, in this work in its many aspects.

9. Our discussions and deliberations have been much facilitated by the presence and co-operation of Mr. C. M. Lloyd and Miss Eckhard of the London School of Economics and Sociology. We realise that what has been accomplished so successfully by this institution in the United Kingdom may not, be altogether suited to Indian conditions; at the same time it is felt widely here that something on similar lines and in a manner suited to the requirements of India is an urgent and imperative need.

119

Considerable hesitation was, however, expressed at both meetings in recommending the institution of a university department for the purpose. Fear was entertained that, in this event, the study and training would be of too academic a nature and that the interest of universities might tend to flag, especially as both meetings were strongly of opinion that, though in some cases diplomas might be awarded, such examination or tests as might be held should not form part of the normal university courses for a degree.

It was therefore decided to recommend that, though the proposed functions might conveniently be carried out under the aegis of a university or universities, the, actual organising agency should be representative of Government, of the university or universities concerned, and of appropriate private associations.

10. A further fear was expressed in this connection that, even if the above recommendation were found to be appropriate, it might impose an additional, though indirect, burden on the responsibilities and resources of universities, and thus there might be a danger of extravagant and unfortunate duplication of effort. My Association and I therefore feel that there should not be more than perhaps three Social Service Centres; and that, indeed, it may be advisable at the outset to concentrate attention on a single such Centre.

The opinion was therefore expressed that Delhi would be the most appropriate Centre, and that participation by the University of Delhi would form a most suitable contribution to be made by that University in the direction of specialised study and research. The additional advantage would be that (it is understood) accommodation might be available either on the old Viceregal estate or in its close vicinity. Delhi is also fortunate in the number of social workers and of men and women, official and non-offical, who possess ample experience of the problems of public administration and social service, and whose participation in the work of the proposed Centre would be of the utmost value.

11. Further details of the proposed Centre were discussed both by the general meetings and by the Committee referred to above. It was felt that such details could be defined far more appropriately in India, and especially, it is hoped, by the Central Advisory Board of Education. On the other hand, the opinion was expressed that the results of our deliberations might be of some value in India; they are therefore forwarded in the form of a memorandum attached to this letter.

12. It is but natural that the function of financing the project came under our consideration. It has been difficult to prepare even rough estimates either of revenue or expenditure but I have been requested to express the hope that the, Government of India and at least those provincial governments likely to benefit by the acceptance of this proposal will find it possible to assist materially in subsidising a scheme which, in my opinion, will prove of great value to the welfare of India.

I am the more inclined to believe that this recommendation will be found possible by the fact that generous provision has been made by the Government of India in the current year's budget and in that of the preceding year towards the task of rural development. I have been requested by the Indian Village Welfare Association and by those associated with the present proposals to express our heartfelt appreciation of this outward and visible sign of the importance attached by the Government of India to the cause which my Association is striving to assist. I would suggest,

120

in conclusion, that this generous provision would be even more fruitful of beneficial results, if there were at hand a body of workers, official and non-official, who had received the incentive of experienced training, and were supported by collections and compilations of books and works of reference dealing with the several spheres of activity.

We would be glad to examine this scheme further in any direction you may desire or to answer any question.

INDIAN VILLAGE WELFARE ASSOCIATION.

Draft Proposals for the establishment of a Centre for study in Social Service and Public, Administration.

The need and importance of promoting a scientific and impartial study of public administration in India, especially in relation to the social services, has in recent years become increasingly evident. The necessity of training those who are taking, or intend to take, part in these activities is also abundantly clear to all who study the efforts now being made by official and unofficial agencies in the direction of social improvement. Many of those actually engaged in this work possess an imperfect knowledge of the theory and practice that should guide their service; and branches of activity, which are or should be interdependent, often show a distressing lack of co-ordination. The theory and practice of local administration, which is so closely connected with the social services, itself also requires careful examination. The present position in India in this respect is scarcely satisfactory. Local administrators, being often limited in their outlook and experience, not infrequently suffer from a confusion of thought, and tend to take action which may be inimical to progress. The degree of control and co-ordination, which is required by the modern idea of ministerial responsibility, is imperfectly realized in India, and the beneficent results, Which should flow from a well ordered administration of the social services by local bodies, are thereby jeopardized.

The Indian Village Welfare Association has for some years interested itself in this question, and has conducted an annual Easter School in England for I. C. S. probationers and other persons who contemplate or are actually engaged in social service work in India. The success of this School has been encouraging and suggests that courses of similar study and training in India, wider in scope and certainly more practical in their nature than is possible for students of Indian conditions in England, are an urgent and imperative need.

The time is opportune for instituting such courses in India, for a Dew field of national service will be opened to all Indian citizens under the new system of government. Sir Francis Younghusband, Chairman of the Indian Village Welfare Association, therefore called together a group of individuals, some of whom have experience at first hand of official or un-official work in India, while others have been concerned in the training of adult students for social service in England. The proposals contained this memorandum are the outcome of the deliberations of this group.

I. The content of the social services in India in particular and of course of training.

A. The course should aim at providing facilities for the study of the other countries in a general manner; of the conduct of public administration (including local administration) in the field of the social services; and of the method of expanding and improving these services.

121

Further, (1) both rural and urban social services should be included in the course;

(2) on the other hand, general administration (law, revenue, etc.) should be excluded;

(3) the approach to this course of study and training should be practical as well as theoretical. Intimate contact with the actual conditions of Indian life, rural and urban, is imperative.

B. The data and information on which the studies should be based are at present inadequate. The material which exists is not always convenient in form or entirely unbiased. It will be desirable, when the courses, have been established, but not as an indispensable preliminary, to arrange that local surveys be conducted by experts. In such surveys university students might take part under guidance, but the close supervision of an expert is always essential.

We have been informed that Professor Mahalanobis, Secretary of the Indian Statistical Institute, would be prepared to render expert guidance on the matter of surveys, on the basis of the experience which he has, already gained.

A library containing the most appropriate literature of India and other countries should be liberally equipped, and should include suitable books and other compilations, dealing with the social services.

The most convenient language for the courses will be English, but the. possibility of short courses in the vernacular should also be considered.

II. The participants in the course.

We consider that the participants should be:-(a) Social workers, men or women, who desire training for a career of social service or of public administration;

(b) officials (approved by their governments), and non-officials who. do not contemplate a full career of social service but who might usefully undergo a period of training either for their own benefit or for that of their employees;

Governments themselves may find it advisable that officers of appropriate departments should attend a course during their period of probation or a few years later;

The length of the course that we envisage for the first category might be one year. For the second category the duration would vary from one month to three months or more, as experience might prove desirable. The manner of providing for the general public cannot at present be foreseen; short courses or single lectures would no doubt be attractive.

Women should be admitted equally with men to all the courses.

Although it is hoped that under-graduates of the universities would benefit indirectly from the scheme, the training of undergraduates as such does not fall within the scope of these proposals.

The award of a Diploma may be useful in the case of the first category of participants, but any examination or test which may be imposed should, in our opinion, not form part of any university course for a degree.

Fees should be charged for attendance at all courses.

122

III. The Agency for conducting the courses.

We consider that (a) though the official and departmental courses, which are at present held in several provinces, are not without profit to those who are instructed in them, their scope and method are not such as to meet the requirements merits of our scheme, and cannot be so widened as to meet them;

(b) though certain Indian universities have made experiments in the proposed direction, a course conducted entirely by a university tends to be insufficiently practical. It is also conceivable that the interest of a university might flag if, as we recommend, the social service course be not an interval part of university work for a degree;

(c) though such unofficial bodies as the Y. M. C. A. and other societies, whether Indian or non-Indian, including missionary societies have made a valuable contribution towards the -desired object, their approach and treatment are of too limited a nature for our purpose.

We consider that social service training of the proposed type is a matter with which governments in India are immediately concerned. Moreover, financial assistance from governments will be required. Though, therefore, the conduct of the courses may conveniently be carried on under the aegis of a university or universities, the actual organising and controlling agency should stand on a broader basis, and might consist of a Committee or Council representative of the governments and universities of the area which the School should serve, together with a substantial un-offical representation in order that the spirit of the controlling body should be Neither excessively official nor unduly academic.

It is not Possible to foresee how many Schools of Social Service and Public Administration will eventually suffice for the needs of India. If the scheme became "provincial", and many universities in India sought forthwith to embark upon such a course, there might be a dangerous duplication of effort, and in consequence a lowering of standards. Our suggestion consequently is that a single School be started experimentally in one centre; and without in any way prejudging the future development of the scheme, we recommend that Delhi be selected in the first place. Generous assistance from the Government of India will be necessary, and it may be hoped that funds will be forthcoming in the same manner as those recently granted for rural reconstruction, or that a portion of these grants may be allotted for our purpose. The Government of India will itself be able to watch and to assist the experiment at Delhi; accommodation for a hostel and lecture-rooms is likely to be available, and there are already at %land, both within and outside the University of Delhi, a number of men and women of experience, whose participation in the work of the proposed Centre would be of great value.

IV. Staff.

An experienced Director of Studies as Principal of the School will be indispensable. We cannot foresee whether the right individual will be found in India, either within the "beneficent departments" or among academic or social workers, or whether he should be engaged from overseas, where considerable experience of work of this nature has already been gained. In either case we urge that adequate emoluments be granted and consider that his conditions of service should not be inferior to those of the head of an important College. The Director should be provided with a Librarian and clerical establishment; a building for the residence and teaching of those who take part in the courser, will be required; and in addition to the direct instruction to be given by the Principal himself--a

123

sufficient portion of his time must be reserved for his directorial duties-temporary lecturers who will give courses of lectures on technical branches of social work and administration should be seconded from Government service or engaged on suitable terms, wherever they may be found. Funds should be provided to meet the expenses of both official and unofficial lecturers, and to supply suitable honoraria where necessary.

The participants will accompany the Principal or the technical lecturers on visits to places of interest and relevance in connection with their studies, and will pursue their investigations on the spot. We attach the highest importance to this part of our proposals.

Presenting, as we do, only the outline of a scheme, we do not feel it incumbent upon us, nor would it be possible, to estimate the exact cost of our proposals. We have referred to two sources of income,viz., the fees of participants in the courses, and grants from the Government of India. The latter should, if the experiment is to be fully tested, be continued for not less than three years. It appears reasonable that, if the first School be founded in Delhi, grants should be made by the governments of the provinces neighbouring to that centre. Grants might also be expected. from the universities in these provinces. In this connection we suggest that if the grants of the provincial governments are made wholly or in part through the Rural Development Board or similar body which is engaged in the promotion of rural welfare in each province, a valuable link will be forged, and the practical studies of those who take part in the course will be facilitated.

In conclusion, we beg the Government of India-

(1) to place our memorandum before the Central Advisory Education Board, in order to obtain their opinion; and

(2) if the Board commends our proposals, to assist in carrying out this project, which we believe to be of the highest importance to India under her reformed constitution.

(c) EXTRACT FROM PARA. 10 OF THE PROCEEDINGS OF THE FIFTH MEETING OF THE CENTRAL ADVISORY BOARD OF EDUCATION.

In 1937, Sir Francis Younghusband, Chairman of the Indian Village Welfare Association, Westminster, forwarded, on behalf of his Association, a draft scheme for the establishment of a centre in India for study in social service and public administration and requested the Government of India: -

(a) to place the scheme before the Central Advisory Board of Education in India; and

(b) if the Board commends the scheme, to assist in carrying out the project.

The main proposals are:

(i) That a centre or centres should be established in India in which an impartial and thorough examination of the problem concerned with the social services could be carried out and by means of which courses of training could be arranged for those engaged, or about to be engaged, in this work in its many aspects;

(ii) That though the centres might be under the aegis of a university or universities, the actual organising agency should be repre-

124

sentative of the Government, of the university or universities, concerned and of appropriate private associations;

(iii) That there should not be more than 3 social service centres and. in the first instance attention should be concentrated on a single centre which might be established in Delhi; and

(iv) That the Government of India and the Provinces, which are, likely to benefit, should bear, in due proportion the cost of the scheme.

After careful consideration the Board decided that a committee consisting of the following members, with powers to co-opt, be appointed to examine the issues arising from the proposed scheme and report to the Board: -

1. The Hon'ble Sir Maurice Gwyer, K.C.B., K.C.S.I., Chief Justice of India. Chairman.

2. Sir V. T. Krishnamachari, K.C.I.E., Dewan of Baroda.

3. The Right Revd. G. D. Barne, C.I.E., O.B.E., V.D., Bishop of Lahore.

4. Rajkumari Amrit Kaur.

5. Dr. R. C. Mazumdar, Ph.D., Vice-Chancellor, Dacca University.

6. Dr. A. F. Rahman, LL.D., B.A. (Oxon.), Member, Federal Public Service Commission.

7. Lala Shri Ram.

8. The Educational Commissioner with the Government of India.

(d) NOTE BY MR. S. D. MATHUR, EXECUTIVE OFFICER, MUNICIPAL BOARD, AGRA.

The utility of a centre for the introduction of practical education as against the present day academical education cannot be questioned. The absence of such an institution in India is largely responsible for the turn-out of incapable and unpractical staff in various departments of administration. The University education is limited mostly to the theoretical courses. The practical side is totally neglected. The result is that people have to go to foreign countries for training in practical side of education. Foreign education has, no doubt, its own value and no educated Indian will grudge the acquisition of foreign education by his country-men where they take advantage of a broader out-look and return with advanced views But it is not within the province of the majority of my countrymen to take that step.

It cannot be denied that want of practical education has been one of the causes of the failure of services in India, on a large scale. The Universities turn out inefficient material. The products of these Universities are physically and mentally bankrupt to take up responsible jobs in the practical field of day-to-day administration and to adopt themselves to changing circumstances. A student of politics knows well what was done by great men in the past but, so far as future is concerned, he is not well equipped to meet the contingencies. As a rule, men come out from the Universities without their own initiative and originality. As an instance, a graduate in Commerce is well conversant with figure work, but when he is placed in a bank to post up registers, he simply looks blank. This is the condition in every branch of administration.

125

A centre for the study of social service and public administration will Serve as a panacea for the present day inefficient and corrupt services in local and provincial Governments. Such a centre is necessary not only for public administration but for every branch of life. The present day graduates are strangers to the dignity of labour. They are a burden to their society and take little interest in social matters. they hardly mix with less educated members of their community and become an eye-sore to their families. This is the result of the existing dry education of our Indian Universities. The standard of living has been raised but the education has deplorably failed to create in them a feeling of self-dependence they lack in the feeling of earning their bread and butter by their own labour.

Local Self-Government is the first step of local administration but this department forms a, subject of adverse criticism on public platforms. The country has not yet been able to derive full benefits of the system of Local Self-Government and the very object of the introduction of this boon has been defeated. It is due only to want of men well equipped to handle successfully the intricate problems than present themselves for solution. Qualified men, will all-round practical knowledge in Local Self-Government, are more needed in this branch of public administration than in any one else. Mal- administration in local bodies and cases of embezzlement, etc., are so common. When a centre is established, and well trained men are available for service, their very presence will change the outlook of these local bodies and wipe out their bad name.

It was with a view to impart practical education in all branches of social service and public administration that the Oxford University took up the initiative to establish regular courses for study. My programme is based on the same lines with modifications to adjust our needs.

These courses, as proposed, should be a post-graduate study, attached to the graduates of all branches in order to make them practical men to grapple successfully in the struggle for existence,

PROGRAMME.

It is necessary to establish two postgraduate courses, to be attached to each University. If it is not possible to include these courses in the Curricula of all Universities, a Centre for this training is highly necessary at some central place without any further delay. One course will be for two years and the other for one year.

A. Two YEAR COURSE. (DIPLOMA).

Compulsory subjects.

1. Social and Economic History of India and other countries.

2. The Constitutional History of England and other countries including India and Modern Political Organisation.

(Modern Political Organisation will include some study of the structure of government, central, local and international with special reference to the institutions of Great Britain).

3. Theory of State.

(This subject will include a study of the relations between the State, the individual, and the voluntary group.)

126

4. Public and Social Administration.

[ The study of the working and interrelation of administrative bodies, both statutory and non-statutory like Public Health, Education, Order and Public Assistance (and Unemployment) including trade-union and other working-class organisation.]

Optional subjects to be selected for specialisation (only one).

1. Public Finance.

2. Local Government since 1760.

3. International organization and administration.

4. Statistical Method.

5. Social and Industrial Psychology.

6. Currency and Credit.

7. Labour Movements since 1815.

8. Recent Developments in the machinery of administration.

9. Administrative Law.

10. Co-operation.

11. Rural Reconstruction.

12. Probation.

13. Jails.

14. Insurance, etc.

The candidates will have to submit a Thesis and to undergo practical training for 3 months in subjects in which specialisation is needed or to take a 6 months' practical training as a whole.

B. ONE YEAR COURSE (CERTIFICATE).

Compulsory subjects.

2 and 4 of the "A" course.

Optional subjects (only one to be selected).

The same as in "A" course.

The candidates will be required either to submit a Thesis or to undergo training for 3 months.

In addition to these courses, lectures will be arranged to be delivered by eminent educationalists and men working or having intimate knowledge of the following subjects:-

1. Public Health.

2. Public Assistance and Unemployment.

3. Trade Unions (in relation to Trade Boards, the Industrial Court, Adult Education).

4. The Co-operative Movement (cf. the Agricultural Marketing Acts).

5. Friendly Societies in relation to Social Insurance (cf. Employers' Association).

6. Relation of statutory to voluntary work.

7. Individualisation, e.g.,

(a) Mental Health and Mental Deficiency work;

(b) Child Guidance Clinics, etc., and Delinquency;

127

C. CERTIFICATE OF TRAINING FOR SOCIAL WORK.

This course will consist of (1) three Terms' work at the Centre under, supervisors approved by the Committee for social studies; and (2) either (a) a period of supervised practical work in connection with some approved organisation or organisations for social or industrial work, or (b) an inquiry into some problems of rural or urban conditions of administration in a selected district with a report thereon.

(e) AN ANSWER TO THE QUESTION "SHOULD SOME FORM OF SOCIAL SERVICE BE MADE COMPULSORY FOR ALL STUDENTS AT SOME STAGE OF THEIR SCHOOL OR UNIVERSITY COURSE?"

The following scheme is put forward on behalf of the Indian Public Schools Conference.

To prevent this note becoming too long, the reasons for some of the proposals are either omitted or only hinted at. The, authors are prepared. of course to give their reasons at length later on, if required.

The scheme is as follows:-

1. A period of three months continuous compulsory social service should be required of every undergraduate in India.

2. No undergraduate should be allowed to take his degree without a certificate that he has satisfactorily performed this service for this. period.

3. It will help this scheme if all B.A. and other degree courses extend over at least three years; if Matric courses are lengthened by one year; if Intermediate courses are abolished; and if undergraduates are not admitted to degree courses before their 17th birthday.

4. The social service should be performed in 'winter camps' situated at convenient places in each University area. It is not at all necessary for the same places to be selected every year. Therefore the accommodation provided should be cheap and temporary, (e.g., tents or huts) and the life in them should be organized much as it is in a University Training Corps.

5. These camps should be opened annually for three months during the period November to March when the weather is cool.

6. UDder-graduates should normally attend during their first academic year; but those taking a course lasting more than three years may more conveniently be sent to camp in a later year. Those prevented by unavoidable causes from attending in the year in which they were due to attend must attend in the next, year.

7. It is thought to be possible for undergraduates who have attended a winter camp to make up some of the lectures which they have missed by decreasing the length of the summer vacation which precedes or follows their winter camp. Be that practicable or not, the authors consider that it ought to be possible to help on every undergraduate with part of his studies in the camps themselves by means of evening lectures.

8. The camps should be staffed by:-

(a) Government or State officials of the various nation- building departments who should plan direct and supervise all the manual work done. They will be paid by Governments or States as usual. No special allowances are needed for them.

128

(b) College teachers, who will. be drawing their usual College salaries while in camp. We feel it to be not too much to call on Colleges to spare some teachers for these camps as each College will also be sending many undergraduates. They should assist in maintaining discipline and in the camp routine organization and recreation and should help in all field work which can be correlated with University studies. They may be able also to give some evening lectures in the camps.

(One member of the Conference has also suggested obtaining the services of some one very well qualified to act as camp commandant with his own Staff. There are several ideas about the selection of this important person. One is that he should be an Army officer with a few N. C. O.'s, seconded for three months. If lie were, all undergraduates who belonged to the University Training Corps might do some of their annual training in the camp. Another is that he should be a well known social worker or doctor who brought with him some voluntary workers to help. It seems very desirable that those people who act as camp commandants are normally employed as such year after year.

Enough first class people might be found (only one for each camp) who were willing to come for nothing or with free board and lodging only in order to perform an important piece of social service. If however they had to be paid, the cost should fall on both the Government or State and the University in the area of which the camp was situated in some agreed proportion.)

9. Undergraduates should be transported to and from the camp and fed and lodged in it without cost to them but should receive no pay.

These charges and all charges connected with the running of the camp should be borne in full by the Government or State in the area of which the camp is situated. As against this the Government or State would be getting some free labour for three months.

The camps should be run very simply and great efforts should be made to avoid having to employ a single paid servant.

10. The work done in a camp should be of three kinds-

(a) camp duties of all kinds;

(b) coolie work;

(c) field work which, while sometimes involving manual work, should also demand skill and which should so far as possible be correlated with some University study.

Work (a) may have to be done by each undergraduate, for, say, one week during which he will do nothing else.

Examples:-

cooking, cleaning, sanitation.

Work (b) should normally be done by everyone not employed on work (a) for half of each working day. Raw undergraduates would not have the strength to do work of this kind for

129

longer hours. It would be chosen and supervised by Government officials. Examples:--anti-erosion work, digging of canals, deepening of tanks, road building.

Work (c) should occupy the other half of each working day. Undergraduates should as far as possible be employed on work related to their studies, e.g.

Medical students--village clinics,

Agricultural students--agriculture and afforestation,

Economics students-village surveys,

B.T. students--village schools,

Geography students-map making and local geography and so on.

But there would be some students who could not be fitted in so easily. They would have to take on literacy, sanitation and other campaigns in nearby villages and to lecture villagers at bazars and elsewhere. The probability of finding sufficient work of type (c) should be an important consideration when choosing the site of a camp. If the commandant of a camp were an army officer, University training corps parades might count as work of type (c). Also an advanced course of first aid or life-saving. A good deal more thought is required about work of type (c).

11. An undergraduate considered unfit by the camp doctor for work of type (b) should be kept fully employed on work of types (a) and (c).

12. This scheme has been framed for male undergraduates only. But there seem to be no insuperable reasons against holding camps for women students also and many in favour of them. of course they would differ in many details but the main objects to be secured in both camps would be same. These are :-

(a) to kill the present aversion to manual work by urbanized students,

(h) to foster a spirit of self-help;

(d) to interest students in rural life by bringing them into touch with it;

(e) to show many of them the practical value of their academic studies;

(f) to get useful work done in the countryside;

(g) to advertise and help on the work of rural reconstruction;

(h) to produce a new generation of adults who will do more even than this for village life.

130

APPENDIX IV.

COPY OF LETTER DATED THE 28TH DECEMBER 1940, FROM DR. CLIFFORD MANSHARDT, DIRECTOR, THE SIR DORABJI TATA GRADUATE SCHOOL OF SOCIAL WORK, BOMBAY, TO THE EDUCATIONAL COMMISSIONER WITH THE GOVERNMENT OF INDIA.

I am in receipt of the Draft Report of the Social Service and Public Administration Committee of the Central Advisory Board of Education. The principal recommendations of the Committee are:-

(1) That a centre for social research should be established, preferably in Delhi.

(2) That the centre should have closely associated with it, if not under the same direction, a training school for social workers.

(3) That the research institute should be under the direction of an All-India Committee of about 20 members.

(4) That Government should be asked to bear the recurring cost of the Institute, which would come to about Rs. 75,000Rs. 1,00,000 annually.

(5) That there should be provincial training schools working in close co-operation with the central institution.

I have discussed the matter with the Trustees of the Sir Dorabji Tata Graduate School of Social Work and it is our opinion that the Tata School is in a position to co-operate advantageously in this general scheme.

Our position is somewhat as follows:-

(1) The Tata School has already passed through the throes of organization, is established and has All-India and International connections. The proposed scheme could therefore be put into immediate operation.

(2) All members of the Tata School Faculty are qualified research workers. By adding an industrial expert and an agricultural expert to the present staff, the School could carry out in very adequate manner, both teaching and research.

(3) The Tata School has already the nucleus of a most excellent social science library and new additions are, being made constantly.

(4) The Tata School is affiliated to an excellent functioning Social Settlement, while the city of Bombay offers opportunities unrivalled in India for practical work for students.

(5) Under this Scheme of co-operation with the Tata School, the Government of India's contribution could be almost, cut in half. The principal expense would be the salaries of the industrial and agricultural experts, mentioned in (2) above, and stipends for research students deputed to the School.

The contribution of Government would be between Rs. 25,000 and Rs. 50,000 rather than Rs. 75,000 to 1,00,000 mentioned in the Committee Report.

131

Our Trustees would be prepared to admit Government representatives to the Board of Trustees and to allow an Advisory Committee of 20 members as suggested by the Committee to advise regarding the research activities of the School.

This is a course a skeleton outline and detailed plans would have to be worked out, but I feel that our proposal should at least be communicated to the Central Advisory Board at its Madras meeting in January.

REPORT OF THE SOCIAL SERVICE AND PUBLIC ADMINISTRATION COMMITTEE OF THE CENTRAL ADVISORY BOARD OF EDUCATION, 1940.