THE ECONOMIC WEEKLY January 16, 1965 Dandakaranva: A Survey of Rehabilitation III—Other Urban and Semi-Urban Employment S K Gupta

A few odds and ends should now be dealt with to tie up loose ends and bring the discussion to a close. Apart from industries the other possible means of earning a living in urban and semi-urban areas are private or co-operative trade, transport, contract work of all sorts, public service, and independent professional or consulting work. Of these, the last may be ruled out at once for displaced persons moved to Dandakaranya lacked the neces­ sary qualifications to set up as lawyers, doctors or consulting engineers. What scope did the displaced persons have in the rest and what opportunities were created? RIVATE trade or business is not from the Ministry even when a refe­ have been expected, particularly when P an expanding source of employ­ rence was made. materials had to be obtained from a ment in backward areas where peo­ How many people have been given distance and local markets were not ple's purchasing power is small. Dis­ such business loans and how many fully exploited. Even the hospitals of placed persons seeking employment have made good? I have no exact in­ the DDA did not patronise its pro­ under old established business houses formation about the first but a press ducts in the way they should have in the four or five urban centres with­ note of the Ministry published in a done. Whether with a more attractive in Dandakaranya were likely to get vernacular daily of Calcutta on De­ wrapping and active canvassing sales snort shrint because the latter would cember 15, 1964 gives the number on would improve is more than one can prefer their own km who knew the September 30, 1964 to be 170 which guess, but the society seems to be locality and spoke the local language. presumably includes the 100 families nobody's baby and hardly receives In any case no attempt was made to who had formed themselves into a co­ more than spasmodic attention from give displaced boys a training in sales­ operative society to run a transport the Special Officer (Co-operatives) of manship and induce private business­ service under the name of Navjiban the DDA. men to take them in as apprentices, Transport Co-operation Society. It Transport Tnose who wanted to set up as inde­ also perhaps includes another ten per­ pendent traders or shopkeepers faced The only transport service run ex­ sons who had formed a co-operative clusively for the employment of dis­ an uphill task. They were offered a soap-manufacturing society at Bore­ business loan of Rs 1000 and a house­ placed persons is that of the Nava- gaon, Of the rest only about 10 or 15 jiban Co-operative Transport Society. building loan of Rs 2000 and a maxi­ persons are maintaining themselves mum of three months' dole apparently It started promisingly and did well in fairly well by running canteens, or the initial stages but it began to face under the belief that within that period grocery and carpentry shops in places they would be able to earn enough heavy weather as soon as the foster­ like Koraput, Ambaguda, Jagdalpur, ing care of Sukumar Sen and j K Roy from their meagre capital investment Umarkot, Paralkot and Boregaon. One to maintain their family and repay was withdrawn by death or transfer. even did a thriving grocery business Its 100 members contributed as their the loan. Since, as will be shown later, in the isolated village of Dabugaon no homestead plot had yet been allot­ share the maximum loan they were whose one big weekly hat compen­ entitled to and raised a capital of ted, the income would also have to sated for all the remaining lean days be large enough to pay the rent of Rupees one lakh, The Rehabilitation of the week. But such cases are rare. Industries Corporation advanced Rs 5 the shop room that would have to It should also be said that shops and be hired. Even if a homestead plot lakhs as loan and a fleet of trucks canteens which depend largely on were purchased for running a carrying had been available, it would presum­ DDA staff for sale of their goods ably have been away from the hub of service in which thirty or thirty-three have a somewhat uncertain future of the subscribing members found the urban area and therefore unsuit­ because their market will shrink able as a shopping site. employment as clerks, accountants, as soon as the DDA is wound drivers, cleaners or mechanics. For a Unrealistic Scheme up or work shifted from one zone to time the earnings and emoluments The scheme was, therefore, not very another. Offices and officers are much were reasonably good and part of the realistic and the rigidity with which more mobile than shop-keepers and loan was paid off. The root of the it was applied made its harshness all the shifting of the main Transport trouble which started after the death too plain. One glaring example was garage from Boregaon to Ambaguda of Sukumar Sen lay m the fact that in the case of 23 non-camp displaced spelt disaster to a number of people order to ensure security for the loan families sent from West Bengal to­ who previously lived by catering to it had advanced, the RIC had reserved wards the latter part of 1963 who were their needs. It is only the growth of the right to appoint the members of not offered any homestead plot and a sizable local population with enough the Managing Committee, and after the did not on that account take the busi­ purchasing power which can assure a transfer of J K Roy, had appointed ness loan because there was no place stable custom to grocers and hoteliers. as Chairman, the DDA's Conservator where they could ply their trade, but The co-operative soap factory men­ of Forests between whom and the whose dole was stopped after three tioned earlier is in the doldrums. If it Society's Secretary (who was also an months reducing them literally to has not already closed its doors it officer of the DDA) there soon deve­ starvation till private charity and will have to do it soon. With poor loped irreconcilable differences. The occasional casual work came to their technical skill and crude methods of latter blamed the Chairman for favour­ rescue. Their case evoked no response manufacture nothing better should ing private carrying contractors in pre- 89 January 16, 1965 THE ECONOMIC WEEKLY

90. THE ECONOMIC WEEKLY January 16, 1965 ference to the N C T S which, as a societies of displaced persons and have knocked the bottom out of the DDA sponsored society designed to tribals. They were expected to collect group leader system and deprived it help refugee rehabilitation, deserved a group of displaced persons for both of whatever justification there was of special consideration. The complaint skilled and unskilled work and not dispensing with the time-honoured was that the more hazardous jobs employ outsiders except when no practice of calling for competitive under difficult road conditions which displaced person was available for tenders. the Conservator of Forests gave to the that type of work. As a quid pro quo But the expectation that the group NCTS led to frequent breakdowns for guaranteeing employment of dis­ leader system would lead to large and damages to parts, with consequent placed persons the group leaders were employment of displaced labour has increase in the cost of repair, the given liberal concessions. Works upto been belied. Whatever may have hap­ number of idle hours, and considerable Rs 50,000 (if distributed by the Chief pened in the beginning almost the loss of income. The Secretary, too, or Superintending Engineer) or Rs entire labour force now employed by acted arbitrarily and in defiance of 25,000 (if distributed by an Executive group leaders and other contractors the decision of the majority of mem­ Engineer) could be allotted to them consists of tribal men and women. bers. He had to be pulled up and has, without calling for tenders, and in Where the work site is far removed I think, left the DDA for good. These the case of co-operative societies the from a settler village or transit centre internicine squabbles among two offi­ limit could be doubled. The earnest this is understandable but where it is cers of the DDA who were foisted money was minimal and the security not the failure to enforce a condition upon the NCTS to occupy two key deposit which was not required in which was the raison d'etre of the group positions in the Managing Committee advance could be built up out of leader system will take some explana­ did much damage to a society which small deductions from bills which tion. Responsible officers have told me had started so well and whose poten­ were expected to be paid at scheduled that; the reason why contractors (in­ tialities for good are by no means rates and at frequent intervals during cluding group leaders) prefer tribal exhausted, provided the RIC replaces the progress of the work. Even advance labour to displaced persons is not that these two office-bearers by others payments in between two bills could the latter are unwilling to work or likely to give a better account of be made for unmeasured work at the put in hard labour but that they will themselves. The original idea of Suku- discretion of the Executive Engineer insist on the minimum legal wage be­ mar Sen was, it seems, to transfer the if the Assistant Engineer so recom­ ing paid to them while the former entire transport business of the DDA mended. may be cheated into accepting less. and its petrol pumps to one or more True, casual labour under group lead- transport co-opera lives formed by the The scheme so promising in inten­ ers is not a permanent means of reha­ displaced persons so as to give greater tion did not work as well as its spon­ bilitation but it may yield a useful scope for rehabilitation of displaced sors thought it would. Out of the 426 addition to agricultural income which persons by opening up new opportuni­ East Pakistan displaced persons origi­ has been shown in the majority of ties of gainful employment as drivers, nally registered only a fraction sur­ cases to be very much below subsis­ mechanics., cleaners, clerks, account­ vives. There were complaints of unfair tence level. The group leaders them­ ants, petrol pump men, chaukidars, distribution of work which may be selves could have found in this system etc, whereas the employment of dis­ exaggerated because anybody who a means of permanent rehabilitation if placed persons at present in the vast fails to secure a contract in the ab­ it was worked in the spirit in which transport organisation of the DDA sence of open tender is likely to as­ it was introduced. The near break­ is minimal. The NCTS has not yet cribe motives as to why his rival was down of the system has choked up a justified the expectations it created favoured, but the point on which all promising line of employment and but it is probably not yet too late to group leaders were unanimous was the hampered the rehabilitation of a siz­ pull it out of the rut. undue delay in the payment of bills able number of refugees. and the refund of security deposits Contract Labour which was a severe strain on their exi­ Public Service Another avenue of employment guous resources and drove them into Lastly comes public service which initiated by DDA's first engineer— the clutches of big contractors who in this context means service under member S Bandopadhyaya was the used them as their de facto agents so the DDA because both Orissa and execution of petty contracts through that these contractors got the conces­ M P have their work cut out for them a body of men called group leaders— sions they were not entitled to while to provide employment to their own contracts relating to a wide variety the DDA was denied the benefit of indigenous population and may not of works such as construction of lower rates which competition might unreasonably expect a share of the buildings and link roads as well as have brought about. There were also employment provided by the DDA water-bound macadam high - ways, cases where outside contractors, not which other States, not in any way making of culverts and small bridges, registered as group leaders, were dir­ connected with me refugee problem, excavation of tanks, earthwork for ectly allowed all the concessions a are taking full advantage of. The DDA dams, and miscellaneous construction, group was entitled to on the flimsy had on July 31, 1964 as many as 5.199 repair and maintenance works of all excuse that no group leader was com­ officers and employees of all grades in kinds. These group-leaders were petent to do the job, and this favour its regular establishment and about recruited either from among refugee was repeated even after the DDA had 1.312 employees (this is the figure in settlers or from registered displaced condemned the practice. The Superin­ January 1964 but the number must persons who had migrated from East tending Engineer's latest suggestion, have remained approximately the same) Pakistan but were not fully rehabili­ which I could not accept, was to in its work-charged establishment— tated in West Bengal, Local tribals throw the door wide open to all and together making up a total of over were also entitled to be enrolled as sundry regardless of whether they 6,500 which is not far below the total such, as were a few co-operative were refugees or tribals, which would number said to have been rehabilitated 191 January 16, 1965 THE ECONOMIC WEEKLY

upto date. Disregarding for the moment and given below no distinction was general observation I do not think the nagging question whether such a made between these different catego­ that more than five per cent of them large establishment was necessary for ries. Anybody hailing originally from would be displaced persons. As regards such a small measure of rehabilitation East Bengal and now a permanent the regular establishment of 5,199 and looking at it only from its em­ resident in India was called a dis­ officers and employees about which ployment potential the conclusion is placed person when totalling up the more definite data are available there obvious that if a fair proportion of classified list of personnel in different are three departments—medical, edu­ these employments could be reserved categories of employment. Obviously, cation and zonal administration and for displaced persons much of the pro­ the extent of rehabilitation through resettlement—in which the number of blem of urban rehabilitation could jobs under the DDA is very much less displaced employees (in the broader have been solved and even the ferti­ than the figures would suggest if the sense) had to be large because in their lity status of much sub-marginal land word is restricted, as it should be if case a knowledge of Bengali was essen­ improved with the help of resources the Ministry's directive is to be ob­ tial. Doctors, nurses and compound­ augmented by the income of members served, to sponsored displaced persons. ers must understand what the patients working in different departments of The Ministry's policy may be wrong. say, teachers must teach through the the DDA, part of which was bound to Personally I think that it is. All dis­ medium of the mother tongue, and flow back to the main branch of the placed persons who have found their sevaks and Assistant Administrative settler family. way into Dandakaranya either as Officers must establish direct contact sponsored displaced persons, or as Employment: For Whom? with displaced persons in order to tagged members or as employees understand their problems and ex­ The figures collected by the depart­ should be sought to be permanently plain DDA's policies and schemes. It ments which I shall analyse in sub­ rehabilitated without rigidly adhering is not, therefore, surprising as figures sequent paragraphs are, however, a to the formula that 90 per cent camp in Table 1 show that in these depart­ misleading index of the measure of displaced persons and 10 per cent ments the proportion of displaced per­ rehabilitation through employment non-camp displaced persons are alone sons in Class III posts and to a smal­ under the DDA for the simple reason entitled to consideration. But as long ler extent in Class IV jobs was fairly that the word displaced person is am­ as the formula is not discarded it is high. biguous and has been applied indis­ not possible to take credit for sub­ Directives Disregarded criminately to three classes of persons stantial rehabilitation through jobs by By contrast, the proportion of dis­ each comprising a narrower circle than inclusion of those who do not come placed persons in similar categories in its predecessor. There were, first, those under the accepted definition. other departments was very low and who had lost their homeland in East Recruitment to the upper echelons in some cases so absurdly small that Bengal in consequence of the partition of service where higher qualifications the only possible explanation one can of India whether they were in need are needed provide little scope for think of is either an inherent allergy of assistance or not. Secondly, there employment of displaced persons to employment of displaced persons or were displaced persons in need of though they are important for one an anxiety to favour the claims of par­ assistance and registered as such but reason which I shall explain later. It ticular candidates for one reason or who did not live in camps nor depend is in the lower echelons—the Class III other. on doles. Thirdly, came those who and Class IV posts—where the em­ Obviously the directive issued by were not only registered but were for ployment potential is large and the Sukumar Sen in 1961 with the im­ a long time dependent on doles and standard less exacting where consider­ primatur of the DDA and subsequent­ mostly lived in camps in different able scope exists. Out of about 6,500 ly repeated by the present writer in parts of West Bengal. In connection jobs no information is available to me January 1964 that in all Class III and with rehabilitation in Dandakaranya the about the composition of 1,300 odd Class IV appointments sponsored dis­ word was restricted to the third cate­ work-charged personnel but from placed persons, tagged members, tri- gory who alone were sponsored by the Table 1: Employment of Displaced Persons in the Medical, Education and Government of West Bengal under Zonal Administration Departments of the D D A instructions from the Ministry for Total Number Total Number of movement to Dandakaranya and for of Employees Employees Displaced whose rehabilitation the DDA was directed to accept responsibility. Even tagged members were excluded from consideration, that is, members who were parts of the family in a very real sense (adult sons, brothers, parents, uncles, etc) and who were allowed to accompany the 'sponsored family' in Table 2: Employment of Displaced Persons in other Departments of DDA order that a family was not split up, Total Number Total Number of though, on account of the fact that of Employees Displaced Employees they were not living in camps at the time of departure, none of the rehabi­ litation benefits either by way of doles or separate allotment of agricultural land or payment of agricultural or business loans was extended to them. In the figures of employment of dis­ placed persons collected by the office 92 THE ECONOMIC WEEKLY January 16, 1965 bals, unsponsored displaced persons manent or quasi-permanent employ­ tler villages and transit camps were and local inhabitants should get pre­ ment in public service is one import­ usually situatecl very far from the ference in the order stated went un­ ant means of such rehabilitation the two or three Employment Exchanges heeded. The opportunities of rehabili­ opportunities offered by the large em­ within the Dandakaranya area Lack tation through employment under the ployment potential of the DDA should of knowledge that registration in the DDA were systematically neglected have been more fully utilised. Employment Exchanges and periodic­ through indifference if not something Method of Recruitment to Blame al renewal of such enrollment were a worse. Three States— Kerala, Andhra condition precedent to employment Why this was not done might lead and Punjab—seem to have had a dis­ under a Central Government organi­ to subjective speculations from proportionately large share in filling up sation, and lack of resources to pay which 1 shall refrain but there is no the vacancies and this not because me exorbitant bus fares to and from doubt that the method and the ma­ candidates with requisite skill and their village for registration and in­ chinery of recruitment was partly to qualifications were not available from terview were the two major obstacles blame. In the higher echelons officers among displaced persons or the indi­ to their being considered for appoint­ are either taken on loan from the genous population of Orissa and M P. ment. For the floating new migrants Central or State Governments for a One obvious instance is the Central who were being transferred from one stated period or recruited through the Workshop where displaced boys who transit camp to another till their final UPSC. The proportion of displaced had passed the one and a half year's destination was reached there was the persons in these categories is negligi­ training course in the Industrial Train­ additional handicap that they had no ble, being nil in Class I out of total ing Institutes at Bhilai or Koni were knowledge in which Exchange to re­ of 43, and 24 in Class II out of a not considered fit even for in-plant gister and no guarantee that intima­ total of 129 and these latter consist­ training for six months on the ground tion would reach them in their ed wholly of medical men and a few that they could not be 'trusted to changed address in remote villages or assistant engineers. In the general handle delicate machinery", though the camps where postal service was very non-technical establishment in the Hindustan Steel Works at Bhilai ab­ irregular. In all clerical and other Headquarters which constitutes the sorbed them soon after without any appointments the case of displaced hard core of the administrative machi­ such misgiving. All that the Manager persons therefore goes by default nery, the predominant element came of the Central Workshop would agree while candidates from other States en bloc from the Settlement Depart­ to was to give such training (which who receive prior intimations from ment of the Ministry at New Delhi, would have to be for two years) if a their relatives already in service that when it was about to be closed down completely new wing was opened with some vacancies are in the ofhng have or drastically redueexi. The signific­ additional plants so that access to the whip hand. They hurry to Danda­ ance of this in the context of reha­ 'delicate machinery' would be barred. karanya, get themselves registered and bilitation lies in the fact that in re­ The Chief Administrator not only bide their time till the hour comes cruitment of personnel for the unfilled endorsed this view but suggested a for presenting themselves before the vacancies their sympathies naturally reduction of the stipend recommend­ selection committee. In the only went to people they knew or were in­ ed so that, instead of two years which selection committee over which I pre­ terested in, rather than to displaced is the normal period of training, both sided the great preponderance of can­ persons whose rehabilitation should theoretical and practical, a displaced didates from one particular State have been their special concern. Even boy would have to spend three and a who had no obvious reason to peons and other Class IV staff were half years on an inadequate stipend come so far away from their home allowed to come on deputation and of Rs 35 before the Manager of the state excited my curiosity and enquiries draw the project and deputation al­ DDA Central Workshop would con­ revealed the modus operandi above lowances. sider him properly qualified for ap­ outlined which enabled them to pointment. He did not have such In the selection of candidates for swamp the selection committee be­ qualms when recruiting raw hands appointment to any class of posts the cause candidates from among displac­ from other sources. Chairman did not originally have any ed persons and other States did not say and had no means of checking know the trick. This apathy to employment of whether his directives were ignored. displaced persons, most notorious The Employment Exchange regula­ The rule that nobody should be in the case of the Central Work* tions were applied in a way which appointed without being sponsored shop is also seen in Transport, was definitely calculated to debar em­ by an Employment Exchange has lit- Engineering (construction and irriga­ ployment of displaced persons. The rle valid reason behind it and the way tion), Reclamation, Agriculture and in statute merely required notification of it is being abused justifies its abroga­ jobs in Headquarters or branch offices, vacancies. The rules promulgated by tion or drastic modification. If it was whether in clerical or menial jobs. the Ministry (Home or Labour, I am intended to ensure fair deal for can­ the emphasis here laid on the need of not sure which) went much further didates from ail over India competing employment of displaced persons is not and suggested that no appointment of on equal level it has obviously failed inspired by any narrow parochial view. outsiders should be made before the of its purpose. But in this case where If the DDA had been an ordinary Cen­ candidates sponsored by the Em­ fair deal for all competitors is not tral Government undertaking where op­ ployment Exchanges were first inter­ the objective but the appointment and portunities for employment should be viewed and found unfit and a certi­ rehabilitation of as many displaced overte anx talents no such question ficate obtained from the Director persons as possible, provided they would have arisen. But the DDA was General at New Delhi that he too have the requisite qualification, the set up for a specific purpose, viz, the was unable to suggest any suitable Employment Exchanges are a clumsy rehabilitation of displaced persons candidate. For displaced persons this and time-wasting obstacle in the way. from East Pakistan, and since per­ works very prejudicially because set­ The Employment Exchange officer is

91 January 16, 1965 THE ECONOMIC WEEKLY not the best judge of who is a fit karanya, and this need will increase difficult to resist. The drift from candidate for any particular pose, nor as the number increases. The keenness teacher to sevak, from sevak to LDC, does he pretend to be so for he only of the refugees for the education of and from LDC to UDC isa regular acts as a post office, forwarding the their children has also been quite feature of the DDA administration. names that are recorded in the Ex­ well-known and has been admitted The products of such schools cannot change. I suggested to the Ministry more than once in the pamphlets provide very promising material for that for the purpose of employment issued from time to time by the further education in high schools or of displaced persons the existing rule Ministry when credit is taken for the training in technical institutions. should be modified so that while ah arrangements made by the Project in What is worse is that the few who displaced persons should try to get this behalf. Unfortunately what passes show promise and are sent to Indus­ themselves registered in any one of for education in Dandakaranya is a trial Training Institutes in the neigh­ the local Employment Exchanges or mere make-believe — a facade with­ bouring States feel frustrated and in Calcutta, the DDA should not be out depth of content. sometimes have to desert because debarred from considering their case It cannot be denied that education stipends on which they have to de­ at the lime of selection even if their is the Cinderalla of the Project and pend for their expenses are not regu­ name is not sent up for want of has the smallest budget. With a larly paid through administrative timely intimation, along with that of teacher-student ratio much in excess bottlenecks. those whose names are sent up. If the of the usual norm and without books, A Retrograde Step displaced candidate is selected an maps, black-boards and other aids to Vet it is obvious that unless educa­ intimation could be given to the Em­ education, teaching imparted by un­ tion is more vigorously pursued and ployment Exchange to keep its records trained teachers becomes a meaning­ proper training imparted several ave­ in order. Like many other proposals less mumbling of things learnt by nues of employment would be a closed emanating from the DDA in connec­ rote which is not even an apology for door to the existing and the rising tion with refugee settlement this too ordinary bookish education, far less of generation. The training courses did nor receive any reply and presum­ education with an agricultural or a should be open to girls as well for in ably the matter is still under considera­ practical bias. The Education Officer these days their earnings are also tion. is too timid even to ask for the mini­ necessary to supplement; the family mum allotment of funds necessary for budget, and there are several occupa­ Education and Training books and other requisites and when tions (eg, teaching, nursing midwifery, Superficially education may seem to he takes courage in both hands and service as gram sevikas, etc) in which have little connection with economic does, administrative bungling or apathy girls fit in better than boys. They rehabilitation but this is a mistake. It holds up sanction. Books supposed have also better prospects of employ­ has a vital though indirect bearing on to be supplied free are either not ment in the Stale service as for these such rehabilitation which has so long supplied at all or so rigidly rationed jobs the States have to go far aheld been lost sight of because of the ex­ that one book may have to be shared to recruit their personnel. A nurse's cessive faith of the Ministry in agri­ by ten, fifteen or twenty boys or girls. training scheme was started in a small culture and small scale cot­ One teacher takes three or four clas­ way ai Kondagaon and has already tage industry. Except agriculture ses simultaneously and can pay atten­ proved a great success. A dai train­ where traditional methods may tion to none. There is very little ing scheme was also under way when be followed without much book know­ supervision so that barring the few 1 left. What is sought to be empha­ ledge and handicrafts where manual cases where the teacher is genuinely sised here is that with agriculture dexterity is ail-important all other oc­ interested in teaching the student proving a broken reed and with pros­ cupations require a minimum educa­ scarcely receives any individual pects of more agricultural land reced­ tional background which is the pass­ attention. While the lowest classes in ing into the background greater port to any kind of training or to any primary schools are overfull the sharp­ reliance will have to be placed on job under the public or the private sec­ ly diminishing roll strength in the industrial jobs and jobs in all kinds tor. Even a chaukidar must know his higher classes indicates the huge pro­ u,:. services, crafts and trades where three R's, an aspirant for dar-training portion of failures or desertions which admission as well as success will de­ must have education upto Class V to­ are a measure of the waste of educa­ tail d upon the acquisition of special gether with a knowledge of the local tional effort. This is further exempli­ skills based upon sound academic language, and a literate peon has to fied by the fact that five middle knowledge upto a prescribed standard. prove that he has read upto Class schools in widely separated villages This has been woefully neglected in VIIL Similar qualifications are neces­ in four zones and one high school at the past and may be even more sary for training as a nurse (unless the Umarkot are enough to take in the neglected in the future if the reported still higher standard of Matriculation products of about 150 primary schools step of reducing teaching strength by is insisted on), an auxiliary nurse, a of settler villages for further education. combining the function of sevaks and mid-wife or a gram sevika. No Indus Stipends for students compelled to teachers and dropping the teachers* trial Training Institute would admit live in hostels attached to middle training scheme is given effect to. a student unless he is a matriculate (or, schools or the high school are niggard­ Sevaks in the DDA who have received in special cases, has at least passed the ly and rendered still more so by no special training and who have Class VIII standard) and an L D C cheese-paring deductions. The tea­ their work cut out for them in must, in addition, have knowledge of chers are mostly untrained with a doing their multifarious liaison work typing. Since agricultural land does consolidated salary plus dearness will have added responsibility when not expand pan passu with the expan­ allowance but without any increment agricultural extension work is also sion of the family, new avenues of all so that the desire for transfer to the made part of their duty. If to that kinds must be explored even for the normal administrative hierarchy salari­ is added education the latter is bound existing refugee population in Danda- ed on a time-scale basis becomes to get short shrift.

94 THE ECONOMIC WEEKLY January 16, 1965

Urban Rehabilitation could be made suitable as industrial of displaced persons do not seem to A permanent home is part of eco­ and residential sites so that displaced have bean considered. Nor, for* the nomic rehabilitation. The natural persons could earn their living from matter of that, were the potentialities instinct of an uprooted individual is industries situated within a reasonable of Narayanpur — a fast growing town­ to get some land of his own where he distance from their home. In this way, ship — remembered when large areas can build his home and £row his roots. in Koraput four large plots on the once in the possession of the DDA This has been done quite satisfactorily National Highway measuring 273 acres were proposed to be surrendered to in agriculturally settled villages though in all were acquired from the Orissa the State Government. rights and titles are still to be per­ Government while negotiations were In fact, there has been a surprising started for acquisition of about 78 fected by documents guaranteed by lack of foresight in picking up and ac­ acres in four other plots in Umarkot- the States and the lands are to be quiring suitable areas for urban resi­ Raigarh zone though it has not made mortgaged to the Government of dence of displaced persons and a sur­ much progress yet on account of local India for house building and other prising indifference to their interest resistance. loans. What about urban settlers? when areas transferred by the State Governments for resettlement of dis­ What progress has been made in But the final result upto date is dis­ placed persons were converted to the securing lands for them and giving appointing. Of the four plots acquired purpose of the DDA organisation. One mem a permanent home? one was meant for an industrial estate, example has already been cited — The position, it must be confessed, another for DDA's own industries and the occupation by the DDA staff of is still very nebulous and unsatisfac­ the remaining two for permanent home­ land acquired for homesteads for dis­ tory, A rural non-agricultural settler steads of displaced persons working in placed persons opposite the Ambaguda gels, besides his business loan, half an those industries. The industrial estate Workshop. Another glaring example acre of homestead-cum-kitchen garden has not seen the light of day even in occurs at Farashgaon where 10.40 acres plot and 2 acres of agricultural land. five years and over the site intended of land permanently transferred in By a parity of reasoning Sukumar Sen for it now stand the Central Work­ January 1964 to the DDA for the re­ had suggested that an urban settler shop, the main Transport Garage, and settlement of displaced persons were should get, free of cost, four to eight the Ambaguda Oil Crushing Unit. Ob­ occupied by the Reclamation Depart­ hundred square yards of homestead viously nobody remembered when these ment as their central tractor depot. land and an extra loan for building buildings were erected that an indus­ About half of the 22 acre plot, which his business premises in lieu of two trial estate was projected on this site. the M P Government has agreed to acres of agricultural land. The Minis­ In the adjoining land meant for refugee transfer permanently to the DDA for try did not recognise any parity and homesteads, the staff of the DDA work­ allotment of homestead plots to the refused the extra loan, but in a letter ing in the Workshop and Garage have members of the N C T S is occupied written as late as March 28, 1963 they found a footing and pushed the dis­ by the Project's poultry farm which said that a maximum of 800 sq yards placed persons to the wall. No step has it would be difficult to dislodge when could be allotted per family provided been taken for demarcation and allot­ the deal with the M P Government is the cost of acquisition, if any, and the ment of any homestead plot out these finalised. cost of development did not together parcels of land. The remaining two exceed Rs 500 which would have to plots must still be there but they could Urban resettlement by the allotment be treated as a loan, not as a grant. not be traced and demarcated by the of homestead plots has thus been com­ There seems to have been no follow departmental officers on the date of my pletely neglected. There were probably up of the efforts which Sukumar Sen visit. a few allotments in Boregaon but they had initiated so that even by the were technically speaking for rural Similar indifference was noticeable small traders, not urban small traders. beginning of January 1964 the position in respect of lands offered by the was almost static. The little push that One reason for this neglect was ob­ Madhya Pradesh Government. Nine­ viously lack of vigilance, an absence could make things move was missing, teen acres of land in Jagdalpur town till discussion with State Governments of a constant and spontaneous urge to itself are no doubt being used as an see that no aspects of rehabilitation in was resumed in January or February industrial unit but 59 acres in village 1964. urban areas are ever lost sight of. An­ Kangoli, about four miles from Jagdal- other reason may be some uncertainty Right in the beginning of the Pro­ pur, lay covered with jungles and un- as to where [he displaced persons ject the State Governments had allow­ demarcated in June 1964 and could be should be resertled, for the dismal fail­ ed temporary possession of several plots traced only with considerable difficulty. ure of the industrial ventures under­ of lands on either side of major high­ Till very recently no attempt was made taken upto date may well raise it doubt ways for setting up transit centres to see if water was available under­ as to whether the existing industrial where displaced persons could stay ground, for without water and with­ centres are the most suitable locations. (and, if possible, work) while steps for out power its suitability for industrial Urban rehabilitation and successful their permanent rehabilitation were or residential use would be more than industrialisation should go side by side under way. Lands were also obtained doubtful. There were much better except when employment in public for a longer duration for offices and potentialities in the 50 acre plot in service or trade is assured. staff colonies and industrial units. Dharampura close to the staff colony When Sukumar Sen realised that ex- and now temporarily in the possession Conclusion elusive dependence on agriculture was of the DDA for accommodation of I must bring this discussion to a futile and industrial and other resour¬ lower grade staff and a transit camp close though much more might have ces must be explored he started discus­ but till I talked matter over with the been said. I have scrupulously avoided sion with the State Governments for Chief Secretary of Madhya Pradesh matters administrative — the illogical permanent transfer of some of these towards the end of August 1964 its distribution of powers and functions plots and a few others which were or possibilities for permanent residence at the top level, the inflated staff and

95 January 16,1965 THE ECONOMIC WEEKLY the large establishment bill, the ineffi­ fore the appointment of your success ment recoils on me too for I was for ciency of some technical staff, the enor­ sor." I had barely time to return and ten months the Chairman of the DDA. mous T A bills and the excessive pack and quit. Reconciling of small I have explained elsewhere (see Finan­ amount of unnecessary travelling, and discrepancies by fresh verification was cial Express, December 13, 1964) why other cognate matters — because I out of the question in the circums­ the Chairman's role was comparatively wanted to focus attention on what tances. Skeptics will doubt whether so ineffective. All I can say 12;s that by really matters most, viz, the economic much hustling was really necessary or the time 1 had obtained a clear picture condition of the refugees who were was in the interest of the Project. of the affairs of Dandakaranya by on- taken to and are still living in Danda- People with a malicious turn of mind the-spot studies, by questioning karanya. I have tried to be as factual might think that it was more in the officers, by calling for reports and re­ as possible, not mincing matters but interest of persons who feared expo­ turns, and by appointing investigating not going beyond the data I have in sure and wanted to prevent it by re* teams to probe into different aspects my possession. True, some of these ducing the margin of time between of development, the Minister decided data are slightly descrepant — evi­ my return to Koraput and relinquish­ that the Chairman should only advise dence, no doubt, of some slipshod ment of charge 'with all papers' so that but not act. Not being able to ima­ work in the offices where they were the 'skeletons in the cupboard' I had gine myself in that role I have quit compiled. Given time, the discrepan­ referred to in my letter of resignation That is a matter of very small im­ cies could have been reconciled after might remain safely buried, I had, portance, It is the refugees who proper verification but that time was however, kept from the beginning a matter most, for what happens in not available. The Minister had at one manuscript note book in which all im­ Dandakaranya is a matter of life and stage agreed to my original suggestion portant statistical information contain­ death to them. If my reading of the that unless he wanted me to quit ear­ ed in riles passing through my hands situation is wrong none would be lier I might be relieved on September, were recorded for ready reference, be­ happier than I. If I am right, a heavy 30 which would give him about a cause I found DDA's statistical service responsibility rests on the Ministry, month's time to choose my successor. to be non-existent and disorganised. the DDA, the West Bengal Govern­ Apparently he changed his mind short­ The information contained in these ment and the general public to change ly after for on September 8, when I articles which are based on these notes the shape of things. A report from was in Calcutta, he sent me a tele­ and other papers is not, I presume, Jagdalpur published in the Hindustan gram an extract from which is worth likely to be faulted on the ground of Standard on December 28, 1964 says quoting: "In view of your offer Gov­ large inaccuracies though some small that 282 agricultural settler families ernment consider that in the interest discrepancies may continue to exist. have recently deserted from Umarkot- of the Project you should relinquish The general picture is not distorted, Raigarh area on account of famine charge immediately on your return I admit that the picture is a gloomy conditions which, if true, is a severe from Calcutta on the 10th September one and constitutes an indictment of indictment of the past and a serious and hand over custody of all papers the Dandakaranya Project as it has portent for the future, to the Chief Administrator even be­ worked up till now. Partly the indict­ (Concluded)