[PDF]Sachar Comm Report India 2006

- .JSL .

Social, Economii







anil Educational Status
of the Muslim Community of India




■ ■■





t iiici;



■ ■ ■




A Report








Prime Minister's High Level Committee
Cabinet Secretariat
Government of India



November, 2006




Social, Economic and
Educational Status of the
Muslim Community of India



A Report




Prime Minister's High Level Committee
Cabinet Secretariat
Government of India

November, 2006



November 2006



Prime Minister's High Level Committee

Cabinet Secretariat

Government of India

Sardar Patel Bhawan

Parliament Street

New Delhi 110 001



Designed, Processed and printed at Cirrus Graphics Pvt. Ltd., B-261, Naraina
Industrial Area, New Delhi 110 028. Tel: 91 11 4141 1507/1508/7575, 09811026274
raj gupta@cirrusgraphics. com



Government of India
(Cabinet Secretariat)
Prime Minister's High Level Committee
For Preparation of Report on Social, Economic and Educational Status of the
Muslim Community of India
(Chairperson: Justice Rajindar Sachar)
Sardar Patel Bhawan , Parliament Street, New Delhi

17 November 2006



Hon'ble Dr. Manmohan Singh
Prime Minister of India



Dear Mr. Prime Minister,

On 9 March 2005, the PMO had issued the Notification for constitution of the High Level Committee for preparation
of Report on the Social, Economic and Educational Status of the Muslim Community of India. The Terms of Reference
are appended to this Report. The Committee was to consolidate, collate and analyse the above information to identify
areas of intervention by the Government to address relevant issues relating to the social, economic and educational
status of the Muslim community.

By the end of July the office space, staff and most of the infrastructure was in place. Meanwhile, the first meeting of
the Committee was held on 21 April 2005 followed by a press conference through which the Committee requested the
people of India to provide information to the Committee on the issues covered by its mandate. This was followed up
by large advertisements inserted in more than 100 dailies published from different regions in various Indian languages.
Letters and proformae were issued to several departments of the Government of India, all the state Chief Secretaries
and various other organizations including Registrar General of Census Operations, National Sample Survey
Organisation (NSSO), Election Commission of India, Delimitation Commission, Minorities Commission, Commission
for Backward Classes, Commission for Linguistic Minorities, UPSC, UGC, Universities and other academic bodies and
organizations, the three services, the judiciary and many others. The Committee visited thirteen states with substantial
Muslim population and interacted with a cross section of the people from the entire state, individuals, NGOs, youth,
intellectuals, women, Chief Secretary, Principal Secretaries, Director General of Police and other senior officers. Each
state visit was concluded by a meeting with the Chief Minister and some of his/her colleagues.

Detailed oral and written presentations were made to the Committee. These were summarized and utilized for
writing this report. The states thus covered were Andhra Pradesh, Karnataka, Uttar Pradesh, Rajasthan, Jammu &
Kashmir, Assam, West Bengal, Delhi, Kerala, Madhya Pradesh, Gujarat, Bihar and Maharashtra. Besides, the
Committee also planned to visit Tamil Nadu, Jharkhand and Lakshadweep. However, it could not visit Tamil Nadu
because of flood situation there, Lakshadweep because of inclement weather and Jharkhand because of the ongoing
Assembly Budget Session.

The Committee was unanimous in its view to submit its report by 8 June 2006 when the 15 months time originally
allotted was to expire. However, it came across some insurmountable impediments. In June 2005 the Committee had
written to the Ministry of Programme Implementation and Statistics seeking relevant data of NSSO based on 61st
Round (corresponding to the 2004-05). It was expected that this data would be available by November 2005. Though
the Ministry of Statistics tried its best to supply us the information early but, may be because of the extensive nature
of the work, it could not be supplied to us even by May 2006. Similar was the case with data to be received from RBI,
NABARD, NBCFDC and some other important organizations. Important part of the data was not forthcoming in time
from many States. The Committee, thus, felt that the Report could be open to the criticism of being based on old or
insufficient data. It also realised that Ramazan fasts were to last till 23 October followed by Eid-ul-fitr interspersed with
Diwali causing a little deflection in its work. Thus, on the Committee's recommendation, you very kindly extended the
Committee's tenure till 30 November 2006.



We thank various Departments of the Central and the State Governments, the Reserve Bank of India, NSSO and
many other organisations for their cooperation in making available to the Committee the information asked for the
purpose of preparing this Report. We also record our appreciation for the excellent administrative and other
specialised support provided to the Committee by Dr. Syed Zafar Mahmood deputed by you as Officer on Special Duty
and his team of officials.

The books, public representations and other material available with the Committee are recommended to be passed
on to the Nehru Memorial Library, Teen Murti Bhawan, New Delhi from where these can be accessed by the
Government and the people whenever required.

We have great pleasure in presenting this Report to you.

With warm regards

Yours sincerely,




(Rajindar Sachar)
Chairperson



Members




Saiyid Hamid




Dr. T.K. Oommen




M.A. Basith




Dr. Rakesh Basant



Dr. Akhtar Majeed




Dr. Abusaleh Shariff
Member-Secretary



m



No. 850/3/C/3/05-Pol.
GOVERNMENT OF INDIA
(BHARAT SARKAR)
Prime Minister's Office
(Pradhan Mantri Karyalaya)
New Delhi

Dated : 9 March, 2005

Notification

Sub : Constitution of a High Level Committee to prepare a report on the
social, economic and educational status of the Muslim community
of India.

As it has been noted that there is lack of authentic information about the
social, economic and educational status of the Muslim community of India
which comes in the way of planning, formulating and implementing specific
interventions, policies and programmes to address the issues relating to the
socio-economic backwardness of this community, Government has constituted
a High Level Committee to prepare a comprehensive report covering these
aspects.

2. The Committee has the following composition :



(1)


Justice Rajender Sachar


-Chairperson


(2)


Shri Saiyid Hamid


-Member


(3)


Dr.T.K. Ooman


-Member


(4)


Shri M.A. Basith


-Member


(5)


Dr.Rakesh Basant


-Member


(6)


Dr. Aklitar Majeed


-Member


(7)


Dr.Abu Saleh Shariff


-Member Secretary



V



3. The Terms of Reference of the above High Level Committee (HLC) are
as follows :

(1) The HLC will prepare a report on the social, economic and educational
status of the Muslim community of India. The HLC will finalise and
present its report within fifteen months from the date of this
notification.

(2) More specifically, the HLC will:

(a) Obtain relevant information from departments/agencies of the
Central & State Governments and also conduct an intensive
literature survey to identify published data, articles and research
on relative social, economic and educational status of Muslims in
India at the State, regional and district levels, to address, inter
alia, the following questions:-

(i) In which States, Regions, Districts and Blocks do Muslims
of India mostly live ?

(ii) What is the geographical partem of their economic activity,
i.e. what do they mostly do for a living in various States,
Regions and Districts ?

(iii) What is their asset base & income levels relative to other
groups across various States and Regions ?

(iv) What is the level of their socio-economic development in
terms of relevant indicators such as literacy, rate, dropout
rate, MMR, IMR etc.? How does this compare with other
communities in various States ?

(v) What is their relative share in public & private sector
employment ? Does it vary across States and what is the
pattern of such variation ? Is the share in employment in
proportion to their population in various States ? If not,
what are the hurdles ?

(vi) What is the proportion of Other Backward Classes (OBCs)
from the Muslim community in the total OBC population
in various States ? Are the Muslim OBCs listed in the
comprehensive list of OBCs prepared by the National and
State Backward Classes Commissions and adopted by the
Central and State Governments for reservation for various
purposes ? What is the share of Muslim OBCs in the total



II



public sector employment for OBCs in the Centre and in
various States in various years?

(vii) Does the Muslim community have adequate access to
education & health services, municipal infrastructure, bank
credit, & other services provided by Government/ public
sector entities ? How does this compare to access enjoyed
by other; communities in various States ? What is the level
of social infrastructure (schools, health centers, ICDS
centers etc.) located in areas of Muslim concentration in
comparison to the general level of such infrastructure in
various States ?

(b) Consolidate, collate and analyse the above information/literature
to identify areas of intervention by Government to address
relevant issues relating to the social, economic and educational
status of the Muslim community.

4. The above High Level Committee will be provided all possible
assistance by all Ministries/Departments and other bodies under the
Government to ensure timely collection of data and information to facilitate
their task.

5. The High Level Committee may co-opt or invite such person(s) as it
deems appropriate, to participate in any of its meeting as special invitee(s).

6. The High Level Committee will be located under the Cabinet
Secretariat and will be covered within the definition and explanation of High
Level Committees as given in Cabinet Secretariat O.M. No. 105/1/1/75-CF,
dated 20.11.1975.

7. The Chairperson of the Committee shall work in an honorary capacity.
However, he shall be provided conveyance facility and travelling facilities/
allowances as admissible to a Chief Justice of a High Court.

8. The Committee will be provided required office space, equipment and
secretarial/other staff. An officer not below the rank of Director to
Government of India, will be attached to the Committee during its tenure. On
the recommendation of the Committee, the Cabinet Secretariat may appoint
Consultants for specific periods, in' accordance with the prescribed guidelines,
to carry out specific technical tasks such as data collection, collation and
analysis. Expenditure relating to the conveyance and travelling
facilities/allowances made available to the Chairperson of the Committee, the
meetings of the Committee, the functioning of its Secretariat, fees payable to



Consultants, TA/DA of the Members of the Committee (as admissible to
Grade- 1 officers of the highest category in Government of India) and the
TA/DA of the Consultants to cover the travel related to the work of the
Committee, etc., will be borne by the Cabinet Secretariat.




Nair)
Secretary to PM

Copy to : All Members of the High Level Committee (as per list annexed)

(San jay Mitra)
Joint Secretary to PM



Contents



Letter to the Prime Minister iii

Government of India Notification v

Foreword xiii

Acknowledgements xv

Glossary xvii

1. Context, Approach and Methodology 1

1. Minorities and Development 1

2. Mandate of the Committee 2

3. Approach and Methodology 3

4. Structure of the Report 7

2. Public Perceptions and Perspectives 9

1. The Context 9

2. Identity Related Concerns 1 1

3. Security Related Concerns 13

4. Equity Related Issues 15

5. In lieu of a Conclusion 25

3. Population Size, Distribution and Health Conditions of Muslims 27

1. Introduction 27

2. Population Size and Growth 28

3. Spatial Distribution 29

4. Age-Sex Composition of Population 31

5. Urbanisation 35

6. Demographic Processes 35

7. Child Nutrition 42

8. Future Population Growth Prospects 44



ix



Social, Economic and Educational Status of the Muslim Community of India



4. Educational Conditions of Muslims 49

1. Introduction 49

2. Indicators of Educational Attainment 50

3. Levels of Literacy 52

4. Enrolment Rates and Mean Years of Schooling 54

5. Differentials in Educational Attainment: School Education 59

6. Differentials in Educational Attainment: Higher Education 64

7. Some Correlates of Educational Attainment 72

8. Choice of Educational Institutions: The Case of Madarsas 76

9. Educational Attainment and the Issue of Language 79

10. Some Concluding Observations 84

5. Economy and Employment: Situating Muslims 87

1. Introduction 87

2. Data Base and Methodology 88

3. Worker Population Ratios and Unemployment Rates 89

4 . Distribution of Workers by Activity Status 9 1

5. Distribution of Workers by Enterprise-Type and Location of Work 95

6. Distribution of Workers by Industry Groups 97

7. Distribution of Workers by Occupational Status 102

8. Earnings and Aspects of Employment Security 104

9. Inter- state Variations in Employment Conditions 105

10. Patterns of change in Employment Conditions since the 1990s 106

1 1 . Summing Up 106

6. Access to Bank Credit 123

1. Introduction 123

2. Priority Sector Advances of Scheduled Commercial Banks 124

3. Individual Deposits 132

4. Other Specialised Banking Institutions 134

5. Summing Up 136

7. Access to Social and Physical Infrastructure 139

1. Minorities and Development 139

2 . Village Amenities 141
3: Living Conditions 145

4. Qualitative Study and Observations 148

5. Summary of Findings 149

8. Poverty, Consumption and Standards of Living 151

1. Introduction 151

2. Differentials in Levels of Consumption Expenditure 152

3. Poverty Estimates and Differentials Across SRCs 157

4. Summing Up 161



Contents



9. Government Employment and Programmes 163

1. Introduction 163

2. Participation of Muslims in Government Employment 164

3. Programmes 176

4. Concluding Observation 186

10. The Muslim OBCs and Affirmative Action 189

1. Introduction 189

2. The Emergence of the Category 'Other Backward Classes' 190

3. Muslim OBCs: A Profile 192

4. Approaches to Affirmative action for Muslim OBCs 194

5. Muslim OBCs Not Included in the State and Central List of OBCs 200

6. Empirical Situation 202

7. Concluding Comments 213

1 1 . Leveraging Community Initiatives: The Case of Wakfs 217

1. Introduction 217

2. Economic Potential of Wakf Assets in India 218

3. Constraints on the Fulfillment of Wakf Objectives 221

4. Overcoming Constraints: Some Recommendations 228

5. Summing up 234

12. Looking Ahead: Perspectives and Recommendations 237

1. The Context 237

2. General Policy Initiatives and Approaches 238

3. Specific Policy Initiatives 243

Commissioned Papers 255

References 257

Tecnical Notes 259

Appendix 265

Committee, Consultants and the Secretariat 403



xi



FOREWORD



17 November 2006



On 9 March 2005, the PMO had issued the Notification for constitution of the High Level Committee for
preparation of Report on the Social, Economic and Educational Status of the Muslim Community of India.

The Committee is an independent body of well-known experts drawn from the fields of Economics, Sociology,
Education, Demography, Public Administration, Development Planning and Programme Implementation. It is
mandated to collect, collate and analyse data to prepare a Report and submit it to Prime Minister.

In response to the request of the Committee, information was received from the various Departments of the
Central and the State Governments. On a similar format information was sought from many other organisations
including the Armed Forces. The innocuous purpose was to know if Muslims were under-represented in some
departments or any other sphere and reasons thereof so that the Government could take corrective steps. Such an
approach is not divisive but is positive, an essential requirement for impartial and caring administration in its
commitment for instilling confidence in the fairness of the government's functioning. Without considering such
information, the Government may not be in a position to take any corrective action, even with the best of
intentions. The Committee received data from the Navy and Air Force. However, the Ministry of Defence informed
the Committee that it was not possible for it to supply the data for the Army. It also requested the Committee not
to use the data which had already been sent to the Committee by the Air Force and Navy. Thus, in the Report, the
Committee has not used the data received from the Armed forces.

During the Committee's interaction with women's groups, some of them seriously articulated a grievance that
it did not have any woman member. The Committee tried to make up for this by convening a half- a- day meeting
with women's groups during its visits to the States. In addition to that, women social activists in large numbers
attended all the meetings of all the groups and expressed their points of view and apprehensions in an open and
frank manner. Their input was intensive and to the point about the various matters like education, medical
facilities, Anganwadi requirements etc. The Committee also held one full day meeting in Delhi in fuly 2006
exclusively for women from all over India.

Another issue emphasized before the Committee was that a number of Parliamentary and Assembly
constituencies with substantial Muslim voter population are reserved for SCs while the SC population was not high
>>>