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Sachar Committee and Recommendations

Dr. Rafath Seema,

The central government had appointed a high level committee on 9th March 2005 for the elaborate and extensive study of the Social, Economic.

Educational, Employment conditions of Muslims in India, as there are no proper information to bring out schemes and policies for the elimination of backwardness and upliftment of Muslim community. The committee was headed by Sri. Rajender Sachar, Retd. Chief Justice of High court and Ex-national president of PUCL, the other members include, Sri Syed Hamid, Dr. T.K. Umen, Sri M. C. Basith, Dr. Rakesh Basant, Dr. Akhtar Majeed, Dr. Abu Saleh Shareef. They presented its report to the central government by November 2006, with whatever resources available to them.

Sachar Committee has done deep and extensive research on the issues such as population, education, health, employment, Bank Loans, social and civic amenities, poverty, social welfare scheme for which the committee was primarily dependent not only on population census of 2001 but also on NSSO (National Sample Survey Organization) 61st round (2004-2005), and compared it with 55th round (1999-2000). Not only this whenever necessity arose they also gathered information from various state government and central government departments for the purpose. Sachar committee examined the entire population census. It explained according to the region and religion wise. It is assumed that the growth rate of Indian population is declining, which can be seen in every religion. But this change started little late among Muslims. The report clearly states that in 1961 Muslims were 10.7 percent in country’s population and 13.4 percent according to 2001 census; growth rate of population is declining in Muslims like in other communities and if this continues to be so then Muslim population will be at a standstill with 18 to 19 percent in country’s population. Sachar committee believes that the rate of growth of population will be equal among all the social classes by the end of this century.

According to the population census of 2001 the literacy rate in SC, ST is 52.2 %, Muslims 59.1%, and others 70.8%. The percentage of school going Muslim children is far less when compared to Hindu upper caste and backward classes but good if compared to SC, ST children in 1999-2000. By 2004-2005 the percentage of SC/ST children going to school crossed the percentage of Muslim school going children. 25% of Muslim children between the age group of 6 to 14 years never saw school in their life. The situation is not so worse in any other social group including SC/ST. likewise it is seen that the quality of education of Muslims is worse than SC/ST in rural areas. In countries Population 3.8 crores of people i.e. 6% of population, who have crossed 20 years of age, possess one or the other degree/diploma. Among them 70 out of 1000, possess technical qualification. On the other hand, among Muslim population, people who are above 20 years of age, only 10 out of 1000 possess degree or diploma. About the information of IIM, IIT, there are 4,743 students in IIM, in which only 63 students are Muslims (1.3%). In IIT there are 27,161 students in which only 894 are Muslims (3.3%), the condition is same even in famous medical colleges; there are only 4 percent Muslim students among them. Sachar Committee gathered information of Madarsas as well. Accordingly, 66 percent of Muslim children go to government schools, 30% of them go to private schools and only 4 % of them go to Madarsas for education.
This is 7% in North India and 1.7% in South India.



The committee has shown with statistics that even though all Muslims mother tongue is not Urdu, the people whose mother tongue is Urdu are not given educational facility in proper way to study in their mother tongue. Only in Maharastra there is equilibrium between the people who consider Urdu as their mother tongue, and muslim children studying in Urdu medium. In Karnataka 70% of Muslims consider Urdu as their mother tongue where as only 45% children are studying in Urdu medium. In Andhra Pradesh 80% of Muslims who consider Urdu as their mother tongue only 20% of them are studying in Urdu Medium. In Bihar 60% of Muslims belong to Urdu language and their children studying in Urdu medium is 30%. The situation of Uttar Pradesh is worst, 45% of Muslims mother tongue is Urdu and only 2 % of them are studying in Urdu medium. Sachar committee noted that the states of Maharashtra, Karnataka and Andhra Pradesh were cooperative whereas the North Indian state governments were reluctant/ negligent in giving information to the committee.

Sachar Committee explained the situation of employment among Muslims by dividing it into three categories i.e. self-employment, causal employment and regular employment. The committee has explained that majority of Muslims depend on self-employment, few on casual employment, and some on regular employment. Among the upper caste Hindus first preference is self-employment (including agriculture), second comes regular employment and third is casual employment (daily labour). among SC, ST it is casual employment (daily labour) first, second is self-employment and third is regular employment. Even among Hindu BC self- employment is first, and other two provide same level of employment to them. In the case of regular employment the situation of Muslims is worse compared to all other social groups. As the regular employment opportunities are available only in urban areas, the percentage of the population of urban areas is taken separately; 49% of employees and labour from upper caste have regular/permanent employment, 40% in SC ST, 36% in BC and only 27% in Muslims. As Muslim women are restricted to go out and work as per their tradition, the percentage of these women who do the work with their own strength at their homes is more when compared to other groups’ women. Sachar committee has commented that this work is in the form of sub-contract and both the health and the income of these women may be affected badly. The committee has gathered the information about the percentage of Muslims in police and army as well. In defense, the percentage of upper caste Hindus in various posts is 52 %, BC is 23%, SC, ST 12% where as the percentage of Muslims is only 4%. In central police departments, the percentage of upper caste Hindus is 42%, BC, SC, ST are 23%, whereas the percentage of Muslims is only 6%. In state Police departments, the percentage of upper caste Hindu is 37%, BC is 21%, SC, ST is 26%, whereas the percentage of Muslims is only 7%.

Sachar committee gathered information even on the issue of bank loans. As giving loans to minorities is one of the aims in the policy of Government, therefore, Reserve Bank provided statistics of the bank loans given to the Muslim community to the committee. If the districts are taken separately, where Muslim population is more than average i.e. 51.4%, but the percentage of the loans given by the banks (both public and private) to them is only 11.6%. In one of the districts i.e. Hyderabad where the percentage of Muslims is 41.2% the percentage of bank loans comes to 3.2%. In the districts where the population is between 26 to 40 percent and the average Muslims are 34.2% the bank loans to them is 19.3%. In the districts where the percentage of Muslims is between 22 to 26 percent and the average Muslim population is 24.1%, the percentage of bank loans to them is only 6.3%. As Muslims are more in self-employment and small-scale business, Sachar Committee gathered information about small-scale industry loans and NABARD loans as well. The loans given particularly for this purpose by Small Industries Development Bank of India (SIDBI) from 2000-2006, only 1.5% have been granted for Muslims. rural development being one of the main objectives of NABARD, in the years 2004-05, 2005-06 only 3.2% of loans was provided to Muslim community. In investment sector only 3.9% of loans went to Muslim community. This percentage is far less than the percentage of Muslim population.

Sachar Committee also examined the social and economic facilities. Under this section it discussed about the social and economic facilities such as schools, offices, roads, power, drinking water, travel etc are provided to Muslims on par with others or not. Committee has declared that the social and economic facilities are less, when compared with the population of rural and urban areas. If taken state wise, the education system is worse in the rural areas of West Bengal, where Muslims are in big number. In case of health system Assam, Jammu and Kashmir, West Bengal, Bihar, and Uttar Pradesh states are the worst. In the same states, the Post and Telegram facilities are not fine and worst in the rural areas where Muslim population is more. In all the matters, the South Indian states and Maharashtra are placed in better position. In the case of safe drinking water, only 25% of the rural population is provided with safe drinking water whereas only 15% of rural Muslims are given this facility.

Sachar Committee has also analysed the issue of poverty. To compare poverty among various groups, the monthly basic expenditure per head was taken as an example. According to 2004-05 census, the monthly expenditure per head among upper caste Hindus is Rs.1023/, among BC it is Rs.646/, among Muslims it is Rs.635/ and among SC, ST it is Rs.520/. If taken urban areas wise, Muslims and SC, ST are equal, their monthly expenses per head is Rs.800/, among BC it is Rs.950/, among upper castes it is Rs.1470/. Moreover, the percentage of Muslims among extreme poor classes is high, the Muslims living in urban areas, with monthly expenditure of Rs. 350/ per head is 17%, the percentage among SC, ST in the same areas is 15.7%. According to the census of 2004-05, 22.7% of population is below poverty line in India. From that 8.7% is from upper caste, 21% is from BC, 31% is from Muslims and 35% is from SC, & ST; and again urban areas wise, the percentage of Muslims who are below poverty line is more than that of SC & ST; the percentage of SC & ST who are below poverty line is 36.4% whereas the percentage of Muslims below poverty line is 38.4%. Sachar Committee has examined that the poverty of Muslims is concentrated more in urban areas.

Sachar committee pulled out the statistics of the government employment and explained it. The percentage of Muslims in state government employment is 6.3%, 4.5% In Railways, 2.2% in Banks, 5% in postal department, 3.2% in security forces, 4.7% in Universities, and 10.8% in state government departments. The percentage of Muslims in IAS and IPS is 3% and 4% respectively. The Committee also acquired information on the teaching and non-teaching staff of the Universities. The percentage of upper castes in teaching staff is 45%, and 47% in non-teaching staff, BC are 35% in teaching staff and 18% in non-teaching staff, SC, ST are 7.4% in Teaching staff and 16.9% in non-teaching staff, where as Muslims are 3.7% in teaching and 5.4% in non-teaching staff.

Sachar committee also tried to gather information on the issue of social welfare schemes. it tried to gather information on the socio welfare schemes which would benefit the groups such as poor, children, women, farmers etc. the committee was able to give only partial information about the welfare schemes of all the states because the beneficiaries did not mention their religion. In our country, on every issue committees are constituted. But in most of the cases the committees they do not investigate completely, or else they would not be in favour of people. But as Sachar was the national president of PUCL, a rights organization, he is well aware of the rights of the common people and also has respect towards them. Therefore Sachar committee has got such importance. These recommendations will be in discussion for a long time.

Because of unavailability of information related to the people’s lives and governance, of different social groups, it was difficult for the committee to bring out information about the help, people get from the government and the implementation of government schemes. Therefore, the committee suggested that a National Information Bank should be formed wherein it should gather information of various social groups and the same should be provided by these banks. In this bank the conditions of various groups, to what extent the government schemes are reaching, how many people are benefiting, such kinds of information should also be provided. If this information is available it will be easy to know how these schemes are implemented. Not only government officials but also others like intellectuals, members of Human rights groups, cooperative societies and so on have to form committees and see which society is getting benefited to what extent from the schemes. And this committee’s main purpose should be to give suggestions to the government on how better the government schemes can be implemented.

Taking into consideration the example of “Race Relations Act” of Trinity, Sachar committee has recommended to set up a commission called “Equal Opportunities Commission” to take up complaints whenever minorities rights are violated. Even though National Human Rights Commission and State Human Rights Commission exists, to look into complaints related to unconstitutional discrimination, keeping in view the problems faced by these commissions in proceeding the cases, the committee has recommended the above commission.



Sachar committee has observed that to gain benefit in development, involvement in governance is necessary; otherwise one cannot achieve benefits of development. at every level upper caste has higher hand, on the basis of population, the constitutional guarantees given to SC/ST, gave them an opportunity to represent themselves from Gram Panchayats to Parliament. BCs and Women possess reservations from Gram Panchayats to the Zilla Parishads. But Muslims do not have reservations at any level. In the state of Andhra Pradesh, Minorities have co-opted only in municipalities and co-operative societies. Sachar committee while welcoming this effort, stressed the need to make Muslims part of the governance. In the states of Uttar Pradesh, Bihar, and West Bengal, Muslims are in more number in the places reserved for SC, according to the statistics given by the committee. The committee has sought to consider this situation in the de-limitation of the constituencies.

Sachar Committee while recognizing the facts of Muslims being backward in the field of education, the responsibility of the government given by the constitution, to provide free education to all up to 14 years of age, is very important in case of Muslims. It has asked to establish Urdu medium schools and provide textbooks to the students in Urdu. It also said that, the diversity in society should be reflected in textbooks, and it is necessary to see that the curriculum should not have anything against the Muslims. The training given to the teachers should have the concept of diversity to teach in the broader aspect. Sachar committee has found out that even in higher education the representation of Muslims is less and recommended that UGC should provide more grants to educational institutions and universities according to the social diversity. The Committee also looked into the Minority educational institutions of Andhra Pradesh, Karnataka and Tamil Nadu states, and found that these colleges are out of reach to poor students. The government should provide facilities and financial assistance to these institutions according to the seats allotted by these institutions to the poor Muslims. Even though the percentage of students studying in Madrasas is very less, they should be regarded as high school students and provided facility to get them selves admitted in high school or colleges.

Sachar Committee has recommended that in the field of education, many more IIT and Polytechnic colleges should be established in the areas where the Muslim population is high. As most o the Muslims depend on self-employment and daily labour wages for their livelihood, Sachar Committee has recommended implementation of second labour commission recommendations which will be more useful for Muslims. The institutions which provide employment to the Muslims have to be encouraged by giving them same incentives.

While giving job vacancy advertisements in Urdu, if the institutions also announce that their institute is equal opportunities institute, it will be a good opportunity for the backward classes. In the areas where Muslim population is more, at least one Muslim official should be there in Police stations and hospitals.

Even though after giving the detailed picture of the economic conditions of Muslims in India, the committee wondered whether the government has taken any special measures to eliminate the backwardness. Committee has found that Muslims condition is equal to Sc, and are backward than BC. The government has provided all kind of facilities such as reservations, scholarships, Special hostels, residential schools to SC, ST and BC but the same steps are not taken for the Muslims. Because of which, there is no progress in the economic and social conditions of Muslims.

Reservation is one of the ways for the achievement of equal opportunities. In India Muslims are divide into four types. Among Muslim community they are recognized in three groups – Ashraf, Ajlaf, and Arzal. Based on this division Muslims should be provided reservations and other special rights according to the suggestion given by Sachar Committee. For the building of social development Muslims can be recognized into three groups. The 2nd group Ajlafs rights should be equal to BC rights, the third group Arzal should be recognized equal to SC, because they belong to the traditional occupations. In reservation category they should be recognized as most backward classes.

Sachar Committee has done deep and extensive study, but the recommendations look like simple recommendations. But these recommendations promote the debate of achieving rights of minorities in whole in different fields instead of individual benefits. These will benefit minorities in future. Therefore the recommendations should be implemented wholly but not in fraction.

Dr. Rafath Seema, Gen. Secretary, Nisa

Courtsey: Civil Liberties Monitoring Committee India