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THE ECONOMIC WEEKLY October 19, 1957 The Official of the Union K C Sen ON the attainment of indepen- The Terms of Reference missions in the States, Education dence, was faced with On the June 7, 1955 the Presi­ is a subject, within the jurisdiction the problem of having a language dent appointed a Commission con­ of the States. The Commission has of the Union. This was no easy sisting of 20 persons, under the come to the conclusion that ulti­ task in a country the Constitution Chairmanship of the late Shri B G mately the judgments, decrees and of which has recognised the follow­ Kher, for the purposes (a) to (d) orders of the High Courts and the ing 14 : Assamese, Ben above, and as regards purpose (e), Supreme Courts will have to be in gali, Gujarati, , , the following duty was cast on the Hindi; that Hindi will have to be Kashmiri, , Marathi, Commission, "The preparation or a compulsorily taught in all the States, Oriya, Punjabi, , Tamil, time-schedule according to which although for the purposes of a Telugu, and . Three things and the manner in which Hindi may State the Government institutions may be noticed about this list en gradually replace English as the and administration are expected to passant: (a) Sanskrit, which, ac­ of the Union and use the regional languages; and the cording to the 1951 census, is as a language for communication Commission has devoted two Chap­ spoken by only 555 persons, is re­ between the Union and State ters (Chapters XIII &. XIV) to the cognised as a living language of Governments and between one State subject of Propagation and .Deve­ India, while (b) English, which was Government and another". The lopment of Hindi and the regional shown in the same census as the Commission submitted its Report to languages and to Agencies for im­ mother-tongue of 1,71,742 persona, the President in July 1956. plementation of the National Lan­ has not been so recognised; and guage programme, apparently with As to (b) the Commission has (c) Urdu has been recognised as a, reference to Article 351 of the stated, at page 128 of the Report: language distinct from Hindi. Constitution which runs as follows, "We do not pee that anything is "It shall be the duty of the Union The Constitutional Position to be gained by imposing such for­ to promote the spread of the Hindi The Constituent Assembly which mal restriction in respect of any of enacted the Constitution selected the official purposes of the Union language, to develop it so that it Hindi in script as the at present and we have therefore may serve as a medium of expres­ official language of the Union. In no recommendations to make in sion for all the elements of the a multi-lingual country like ours, this behalf". As to (e), the Com­ composite and to all the 14 languages could not be mission has been unable to frame secure its enrichment by assimila­ the official-languages, like the a time-schedule and has recommen­ ting without interfering with its three official languages of Switzer­ ded that it should be framed by the genius, the forms. style and ex­ land or the two official languages Union Government instead (pages pressions used in Hindustani and of and . The 129 & 130 of the Report). in the other Constitution lays down that after specified in the Eighth Schedule, 1965, English will not continue to Thus the Commission's Report and by drawing, whenever neces­ be used for official purposes of the would be expected to contain It ) sary or desirable, for its vocabulary Union, with the proviso that Eng­ recommendations as to (a) the primarily on Sanskrit and second­ lish may be used only for such pur­ progressive use of Hindi for the ly on other languages". Union's official purposes, (b) the poses as may be specified by Par­ Hindi, the Medium liament. During the interim period language to be used in the Supreme Commissions are to be appointed at Court and the High Court, the Acts, Almost at the beginning of the intervals of 5 years to make re­ rules, etc., and (c) the form of Report, the Commission (p, 39 ) commendations as to, numerals to be used for the Union.'.- observes flint Article 351 provides purposes. As to the last, the Com­ that the Hindi language "shall be (a) the progressive use of the mission has recommended the use so developed as to serve as the Hindi language for the offi­ of the international form of Indian medium for all the elements of the cial purposes of the Union; numerals, following clause 1 of composite culture of India". Is it (b) restrictions on the use of Article 343 of the Constitution. the unconscious bias of the Com­ English for such purposes; Instead of confining its further re­ mission in favour of Hindi that is (c) the language to be used in commendations to (a) and (b), it responsible for the substitution of the Supreme Court and in has allowed itself to go beyond its the word "the" for the word "a" the High Courts, and for terms of reference. arriving at in the Article a mistake repeated Acts, Bills, orders, rules, etc.; " 'conclusions' on other aspects of by Shri Maganbhai P Desal (d) the form of, numerals to be the language question not strictly (p. 383), although he purports to used for the purposes of the within the terms of reference but quote the actual words of the Ar­ Union, and relatable to them". ticle? This confusion explains the (e) any other matter referred by frequent ministerial pronounce­ Some Related Matters the President as regards ments (noticed on page 22, footnote) the official language of the These "conclusions'', inter alia referring to Hindi as "the national Union and the language for relate to education, making the language", an expression never communication between the teaching of Hindi compulsory at used in the Constitution. The duties Union and a State or bet- certain stages in schools and colle­ of the Commission had nothing ween one State and another.' ges and the Public Service Com­ to do with Article 351, which does 1359 October 19, 1957 THE ECONOMIC WEEKLY THE ECONOMIC WEEKLY October 19, 1957 not relate to the official language of matters outside the Commission's finds expression in the dissenting of the Union but to a language to terms of reference suggests that the minutes of Dr Chatterji and Dr be used by all people as a medium apprehension referred to is not al­ Subbarayan. Shri Mehta has said, of expression. This distinction is together idle. Shri Maganbhai P "The O L C report, in this regard, noted particularly in the Note by Desal has observed, "I have felt has not only 'over-flown' the forms Shri Maganbhai P Desai on the that in their cumulative effect these of reference, but also overstepped Report. so-called 'conclusions' (of the Com­ them and made suggestion and mission) err in creating an impres­ remarks, which, to say the least, The Weakness of Hindi sion that Hindi is sought to be will not help allay fears and -appre­ The "two Hindis", so far as they used in places where it should bet­ hensions noted above in this note". are sponsored and "developed" by ter avoid conflict with the legiti­ It would be the tendency of the official or semi-official agencies, may mate claim of regional or State Hindi-speaking peoples to regard not ultimately be very different languages. It is this avoidable their language as superior to the from each other. It is important, conflict that would rather jeopardise other languages of India and ge­ however, to note that even now India's unity by unwittingly pro­ nerally to advocate the imposition different varieties of the language voking emotional malintegration of Hindi in non-Hindi speaking are In use in different parts of the among linguistic groups". areas. The largeness of the Hindi- speaking areas and population, the country. Dr Suniti Kumar Chat- An illustration on this point is unique position of Hindi as the terjl observes: "Three or four con­ furnished by a bill which was flicting tendencies, each with introduced in the State Legislature Union's language, the necessity for strong supporters, are hampering of Bombay four years ago prescrib­ the State Government's to corres­ its development, and most other In­ ing Hindi as the official language pond with the Union and other dian languages are free from this of the State for purposes (includ­ States in Hindi, the compulsory conflict of ideals". Hindi properly ing legislative) higher than those teaching of Hindi in the educational belongs to the peoples of Western at the taluka and district levels. It institutions of all States (the , Eastern and was argued in favour of this move suggestion that Hindi-speaking parts of Madhya Bharat, Madhya that as the State was multilingual, peoples should be compelled to Pradesh and ; others Hindi ought to be the language for learn another language being speaking languages like Braj-Bha- official purposes at the higher brushed aside by the Commission sha, Awadhi, Bhojpuri, Rajasthan, level. The bill had to be dropped as an "imposition", p 191)— will Garhwali, etc., who first took to on account of the popular opposi­ not all this give rise to a feeling Urdu have now taken to Khariboll tion to it. that Hindi is a language of pri­ Hindi, as taught In the schools in mary. I e, national, importance, the towns, and have persuaded Article 345 of the Constitution while the other languages are of themselves that their home lan­ allows the Legislature of a State secondary or regional importance guages are of Hindi. The to adopt any one or more of the only, participants in an unequal influence of all these element", languages in use in the State or competition, and that thus Hindi some of whom have still a decided Hindi as the language or language is intended to become the national to be used for all or any of the preference for Urdu, is producing language, an expression often used official purposes of that State. In a result which is characterised by by many of our leaders? conformity with this provision Is Dr Chatterji, himself a Hindi the provision in the Uni­ Scholar, as "largely a linguistic A Symbol of Disunity versity Act for the use of Gujarat! chaos". Sir Ivor Jennings .in his "Com­ or Hindi in Devanagari script or monwealth in Asia" remarked, "lf Dr Chatterji further remarks, both as the Hindi were the "People who possess as their and examination in the University. the Hindi-speaking peoples of the mother-tongues well-formed langua­ But in a recently established Uni­ North would become as dominant ges with a continuous literary his­ versity in Gujarat, the Vallabh a class as the English-speaking tory of over a thousand years and Vidyapith, the Act constituting it are now. English is at least neu­ more, like Bengali, Assamese, provides that Hindi only shall be tral, a language which all can Oriya, Marathi, Gujarati, Telugu, the medium of instruction and learn on equal terms. Hindi would Tamil and Kannada, and even Pun­ examination. Shri Mehta remarks, give a preference to some and so jabi and Maithill, feel very diffident "Obviously this is bound to be felt would be anathema to others" about accepting this new creation, as an imposition or domination of (p 48), Mr Frank Anthony, in a particularly when by direct and in­ Hindi not only in the official but recent speech (The Statesman. direct means it is attempted to be also in the educational and cultural September 16, 1957) has gone so forced upon them". fields''. far as to observe, "So far from being a symbol of unity, the new The Problem of Force Fears of Non-Hindi Peoples Hindi has become increasingly a As to the "attempt to force", Inspite of the professions of our symbol of disunity, a symbol of there Is no doubt a real and sub­ well-meaning leaders, from the new language imperialism and also stantial apprehension in the non- President downwards, that it is a symbol of the oppression of the Hindi areas in the East and South. not intended to impose Hindi regional and minority languages. People of these areas will find a against the wishes of non-Hindi In the Punjab, the new Hindi has pro-Hindi bias in the Majority Re­ speaking parts of the country, an become identified not only with port of the Commission, as is quite apprehension of "Hindi imperial­ Hindi chauvinism but with evident from the dissenting minu­ ism" breaks out every now and religion". tes of Dr Chatterji and Dr Subba- , then in speeches and writings in Dr Subbarayan in his Minute rayan. The inclusion in the Report such areas. This apprehension observes: "From the Press and 1361

THE ECONOMIC WEEKLY October 19, 1957 platform an atmosphere has been ing areas that Hindi was not to vision would militate created that Hindi is to be regard­ compete with the great literary against the whole spirit of the ed as the pivot of Indian nationali- languages of India but that it was Constitution itself The sm Many good people, to supplement them by providing emotional integration of the whole particularly in the Hindi areas, a common medium of communica­ country is possible only if there is have now persuaded themselves to tion. "Its. function was to make no suggestion of any kind of im­ the belief that promoting the free them realize their organic rela­ position by one language-group on and unfettered expansion of Hindi tionship with India" ( Diary, another. Far from being strength­ all over the bounden duty January 25, 1948, p 379). It is ened, national unity would be Im­ of all Indian citizens, no matter mainly Gandhiji's ideas that have perilled by any precipitate switch­ what language they may speak." been reflected in Articles 343, 345, over to Hindi". In this connection, one cannot 346 and 351 of the Constitution. The Place of English help thinking of the recent emerg­ The dominant ideas fin those Arti­ ence of violent disturbances in cles are that by 1965 the use of Thus the question has been rais­ certain parts of the country follow­ English for the official purposes of ed whether the choice of Hindi, ing the publication of the States the Union shall in the main be alone among the languages of Reorganisation Commission's Re­ replaced by Hindi, which shall also India, as the official language of port, This shows the pitch which be the ordinary language of com­ the Union has been wise. In the the linguistic consciousness of munication between States and that first, place, has it been proper to different areas has attained, a it shall be the duty of the Union exclude English from the Eighth consciousness which cannot be to promote the spread of Hindi, to Schedule? As already pointed out, airily or contemptuously dismissed develop and enrich it. English figures as the mother- as "linguism". If Hindi is to tongue of .1,7.1,7-12 persons in the attain a position of superiority over Opposition to Hindi 195.1 census surely not an inconsi­ the other languages, would not a Voices are being raised against derable number when it is seen grievance or feeling of inferiority the pro-eminence thus given to that Sanskrit, spoken by only 555 be engendered in the non-Hindi Hindi. Recently Shri Rajgopala- persons, figures as an Indian lan­ speaking areas as well as a re­ chari has opposed the adoption of guage in the same schedule. By sentment against the new "impe­ Hindi as the Union's official langu­ this action the framers of the Con­ rialism", so that the very unity of age, A large body of Bengali stitution have undoubtedly shown the country desired by the adoption authors wrote to the Statesman their anti-English bias. of one official language would be and on August 29 last, It was perhaps all right for Gan­ endangered and even frustrated? "It is impossible to choose Hindi, dhiji to say in 1909 (Hind Swaraj, The risk is undoubtedly present. or for that matter any other Indian Chapter XVIII) "And, if we can It is, therefore, necessary to have language, as the official language do this ( adopt. Hindi as a 'univer a look at the fundamentals of the of India without marking out those sal language' for India ). we ran situation. born to that language as a privi­ drive the , out of leged community If from the field in a short time. All this Gandhiji on Hindi recent events one thing stands out is necessary for us, slaves". As In propagating the idea of the more clearly than any other, it in late as 1947 Gandhiji was saying adoption of Hindi as the lingua, that linguistic, sentiments are (Harijan. 21-9-1947), "My plea is franca, of India, Gandhiji had cumbustible, not to be played with for banishing English as a cultu­ taken a prominent part. In 1909, even by the most popular leader ral usurper as we successfully ban­ in his 'Hind Swaraj', he said, "A except at his own peril and the ished the political rule of the Eng­ universal language of India should peril of the country". lish usurper," The strong expres­ be Hindi, with the option of writing They proposed that if it was sions "drive the English language it in Persian or Nagari characters. still desired that Hindi should be out of the field'' and "banish Eng­ And, if we can do this, we can given a special place in official lish*' were no doubt necessitated drive the English language out of communication, perhaps the only by the strong emotions felt by the field in a short time. All this way to do this, without grave dan­ India against her political master; is necessary for us, slaves". In ger of national disunion, was to it seems to me that something his presidential at the adopt Hindi side by side With of the same strength of feeling ac­ Gujarat Educational Conference English as an alternative official counts for the banishment of Eng' held in 1917, Gandhijl listed 5 tests language of the land. A joint lish from the Eighth Schedule, in- or characteristics of a "national memorandum addressed to the spite of the testimony of the Cen­ language" and said that 'there Prime Minister by Congress sus of 1951. was not another language capable members of Parliament from The predominance of English to of competing with Hindi in .satis­ Andhra, , Madras and the point or exclusion or denial of fying the five conditions". In 1924- urged the postponement of the just, claims of the regional 25 Gandhiji got the Indian National the adoption of Hindi as the languages is no doubt a fact no Congress to accept Hindustani as Union's official language till 1996. longer to be tolerated. But the its official language and to include "Any precipitate step with regard fact that it exercises an undue in­ Hindi Prachar work as an item to Hindi", they said, "is bound to fluence and even fascination over of the nation's constructive aggravate fears and do a perma­ the minds of a large body of edu­ programme. nent injury to national unity". The cated persons is no excuse for In building up the Hindi move­ Hindu, in an editorial on September ignoring the legitimate claims of ment, Gandhijl wanted to assure 7, 1957 observed: "Sticking to the English as a firmly established na­ all people in the non-Hindi speak­ letters of one Constitutional pro- tional language of India, leaving 1363

THE ECONOMIC WEEKLY October 19, 1957 out for the moment the question ras, in formulating its language (2) Should not Hindi be made a of its international and cultural policy and making the mother- subject of compulsory study? importance, It seems necessary, tongue and English compulsory (p. 83 of the Report). therefore, that this wrong should and making Hindi an optional lan­ The Government of Madras answer be righted by including English guage in schools, points out, 'Eng­ ed both the questions in the nega­ among the languages mentioned lish provides, and Hindi cannot tive; and gave the following rea­ in the Eighth Schedule. provide, direct access to creative sons. modern thought.'' Three Official Languages "First- English must be the se­ If English can be included in The Hindi envisaged in our Con­ cond language and Hindi the third the list of recognised languages a stitution as the official language of language for the following rea­ great and significant step will have the Union is not yet fully develop­ sons: been taken in the right direction. ed; if it be a language different (a) English has to be and Hindi Thereafter the question will arise, from the regional varities known cannot be the medium of scientific why not have more than one offi­ as Hindi today, it may become too and professional Instruction In col­ cial language of the Union,—Hindi, wooden and formal to evoke much leges; and Urdu (representing the largest lan­ enthusiasm among the non-Hindi (b) English provides and Hindi guage groups) and English (repre­ speaking peoples of India. For cannot provide a direct access to senting the smallest language such a language to arrogate to it­ creative modern thought. It is group—leaving out Sanskrit). self the supreme place among the true that Hindi might be developed This will be a symbolic recognition languages may easily evoke feel­ one day to perform these functions. on the part of the Legislature of ings of opposition and repulsion But it is equally true that the the equal worth of the largest and in non-Hindi speaking areas. To mother-tongue would also be do developed—perhaps even earlier. the smallest, Having recognised prevent such a contingency, it is In any case this consideration does Urdu as a language distinct from better that it should compete with a powerful language like English- not make a difference to the re­ Hindi—it is the language of quite one of our own languages- and have quirements of practical action be­ a considerable population- it would also the support and collaboration tween now and 1965. be appropriate to recogniue it as of Urdu, It will then be unable to an official language. At one time "Secondly—Hindi cannot be made rely only on its official pre-eminence, the subject of compulsory study in it was far more important than and will have to bestir itself to Hindi and even now it is a more secondary schools of this State for clothe itself with the life and per­ the following reasons: developed language. sonality of one of the current lan­ We need have no inferiority com­ guages of the land. (a) The prescription of a lang­ plex about English any longer. It uage as a subject of compulsory has moulded a large proportion, It will gladden the hearts of our study entails the consequence that of our thoughts and ideals for Muslim brothers, as well as other failure to attain a minimum stand over a century and has contribut­ important elements of the popu­ ard in that language win be attend­ ed and is contributing largely to lation in Northern India, If Urdu ed by serious penalty, viz., loss of our present-day culture. It will be is given its due place beside prospects of admission to colleges, impossible for us to purge ourselves Hindi. This may lead to a greater and of admission to all those pro of its influence at any time or approximation between the two fessions which are limited to col­ that of the world of modern life languages, symbolic of the Hindu lege-educated persons, it would be and thought that has come to us and Muslim elements in India. The an unreasonable strain on the ner­ through its doors, to abandon the effect of choosing English as one vous energy of young students to existing culture-pattern of the of the official languages of the subject them to the anxieties of world, its insights, its develop­ Union will be similar as regards such a penalty in respect of three ments in diverse fields of thought the Christian elements of the popu­ different languages. and experience, its speculations, lation. (b) The object of the suggestion its outlook and horizons, even its that Hindi should be prescribed as doubts, hesitations and criticisms There would also be no objec­ tion to having a fourth language. a subject of compulsory study can of life. Neither our country nor only be to secure that a large num­ any other is today sufficient unto Sanskrit, for purely ceremonial and formal purposes of the Union. ber of students would learn it itself. If we are to guard ourselves more diligently than otherwise, against stagnation, regression and That would be symbolic of our link with the past of our hoary This object will not only not be self-delusion we must not close our secured, it will be defeated by the doors and windows to the world civilisation, our desire for continu­ ity and our recognition of the course proposed. For, it R will create at large, but keep alive a perpetual the apprehension that Hindi is be­ Intercourse with, it. It would be ancient roots of our national exist­ ence. ing 'imposed' and, thereby, arouse best if we this through the lead­ a feeling of hostility to Hindi. On ing international language, Eng­ The Madras Government's Attitude the other hand, if Hindi continues lish, ''a language already current It seems pertinent here to refer to be recognised as the third lan­ in India with a progressive rise to the reply of the Government of guage in all schools, and all prac­ in the number of English lite- Madras to the following two ques­ ticable steps are taken to raise the rates.' To throw away so great an tions; efficiency of instruction in Hindi, advantage "would be an act of .self- (1) Should not Hindi be given at consistently with its optional char­ mutilation" to quote the letter of least the same place as Eng­ acter, the knowledge of Hindi Is the Bengali authors referred to lish, after the mother-tongue bound to increase steadily in this above. The Government of Mad­ in particular? State. If. as is to be expected, the 1365

THE ECONOMIC WEEKLY October 19, 1957

Government of India require that two or three other languages offi­ communicate with one another in candidates should have passed an cial languages of the Union as one or more of the Union's official approved school examination in well. It seems to be a fact that in languages or in some other language Hindi as the condition of employ­ those areas where English has vir­ mutually agreed upon. The Union ment under the Government of tually been discarded and replaced Public Service Commission will con India, there can be little doubt that by Hindi in the educational institu­ duct its examinations through the the students will voluntarily make tions, there has been "a serious media of all the official languages good use of the facilities made avai­ deterioration in standards" (Minute of the Union, with option to each lable to them in all schools". of Dissent by Dr Subbarayan, para candidate to answer in any of them. 19). The language of the High Courts Hindi: An Optional Language In a speech made by Shri Jawa- and Supreme Court will continue Although many States , harlal Nehru at Sapru House en to be in English till such time as Bombay, Coorg, Hyderabad, Sau- April 29, 1957, he said, 'I do the necessary preparations, in the rashtra and Travancore-Cochin-- not see why we should be afraid of way of evolving legal vocabulary, have made Hindi a compulsory sub­ using English, provided we are clear etc., have been completed in Hindi, ject in the secondary stage in about our objective, where we are when the stage would be reached schools, Madras has made provi­ going We have to recognise for legislation in this respect, if sion for the study of Hindi as an the importance of English to us, for legislation be felt necessary. But optional non-examination language at least two reasons. One is that in any change in the language of in the curriculum of secondary even now it does help in understand­ the Courts the opinion of the schools. Inspite of this it is found ing each other, especially the people Supreme Court, and of the High that a very large proportion of the from the North and the South and Court concerned as regards the pupils voluntarily learn Hindi, as other parts of India. We should lower courts, should be sought and shown by the figures in the table keep this link. The other reason is ordinarily followed. below. that it provides a link between us This table provides sufficient jus in India and the outside world, and tification for the method followed it is of utmost importance that we in the State of Madras. This me­ should maintain that link with the thod is worthy of emulation by all outside world and not try to cut the non-Hindi speaking States, al­ off ourselves from it and isolate though the number of pupils volun­ ourselves". tarily learning Hindi may fall off a little if Hindi is merely made- Future Policy one of the Union's language. If If Hindi, Urdu and English are Hindi is made a. compulsory subject recognised as the official languages in the schools in non-Hindi speak­ of India, no apprehension would be ing areas, the local language also raised in the mind of any citizen of having to be made compulsory, the India, the steady progress of Hindi study of English will undoubtedly in all parts of the country, unham­ languish and be relegated to a se­ pered by such apprehension, would condary position; the position of be assured, continuity with our past banishment, once desired by Gan- in culture and education would be dhiji, will virtually be reached. Will preserved, the super-eminence of that not jeopardise the cultural ad­ English would disappear, and all vantage we derive at present by problems of language would become learning English? free from questions involving com­ Let us remind ourselves that it pulsion and unimpeded by unneces­ was Gandhiji, again, who said, ' I" sary impositions. The States would do not want my house to be walied frame their own policies with -re­ in on all sides and my windows to gard to language in administration be stuffed. I want the cultures of and education, but would no doubt all lands to be blown about my encourage the voluntary study of house as freely as possible. But 1 Hindi, as the State of Madras is at refuse to be blown off my feet by present doing. any .... Mine is not a religion of All enactments of Parliament, all the prison house." His objective of orders, communications, notifica­ removing English from the pedestal tions, etc., of the Central Govern­ on which it stands at present, will ment will be published in all the be sufficiently achieved by making State languages, and the States will

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